here - Village of Pemberton

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Pemberton
AFFORDABLE HOUSING STRATEGY
F i n a l Re p o r t
D e c e m be r 2 0 0 9
Prepared f o r :
Prepared b y :
FOREWORD
The Village of Pemberton and CitySpaces Consulting would like to thank the individuals and
groups who shared their time and feedback with us in the development of the Affordable
Housing Strategy. We would like to thank Mount Currie Coffee, the Pemberton Community
Centre, the Pemberton Health Centre and the Bank of Nova Scotia for hosting our survey
stations during the month of June and those individuals who took the time to complete the
survey. Special thanks are also given to the Development Services staff at the Village of
Pemberton, members of the project steering committee, Councillors and development
industry representatives who committed valuable insights, ideas and time to review
materials and ensure that the proposed approaches reflected the local context and
perspective. The appendices identify members of the steering committee, key staff, and
those individuals and groups involved in the consultation process.
Pemberton Affordable
Housing Strategy
Prepared for the
Village of Pemberton
December 2009
SUMMARY OF STRATEGY
VISION
The Pemberton Affordable Housing Strategy seeks to “create a mix of rental, ownership
and non-market housing options to meet the diverse and evolving needs of Pemberton
residents”.
GOALS
The Village of Pemberton shall seek to:
• Enhance the supply and quality of rental housing for low income households.
• Provide a variety of affordable ownership housing options for young families, first
time home purchasers and those seeking to move up the property ladder.
• Encourage housing designed to meet changing household needs and allow seniors to
age in place.
• Encourage the development of housing for seasonal workers.
• Encourage the provision of housing services and supports for Pemberton’s vulnerable
populations.
ROLES
The Village of Pemberton has six key roles in delivering affordable housing within
the community:
• Role #1 - Setting Policy: Clear, consistently applied policies express the City’s
commitment to affordable housing.
• Role #2 - Establishing Regulations: Effective use of regulatory authority creates
housing opportunities to facilitate affordable housing options.
• Role #3 - Revenue Generation and Land Banking: Strategic use of Village resources
(land, revenues) can support an increased supply of affordable housing.
• Role #4 - Leveraging Partnerships: Collaboration with the business and non-profit
communities, and Provincial agencies can lead to creative solutions to existing and
emerging housing issues.
• Role #5 - Advocacy, Education and Capacity Building: Dedication of staff resources,
political leadership and advocacy toward senior levels of government will
demonstrate a commitment to ongoing leadership and contribute to increased
capacity to create affordable housing.
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STRATEGIC DIRECTIONS
• Strategic Direction #1 - Draft and adopt affordable housing policies that provide clear
and consistent direction to staff, council and developers.
• Strategic Direction #2 - Streamline the development review process and remove
barriers to affordable housing development.
• Strategic Direction #3 - Amend regulations to encourage innovation in the design and
planning of new residential construction as well as residential redevelopment and
infill projects.
• Strategic Direction #4 - Amend zoning regulations to facilitate the development of
accessory suites as a means of increasing the rental housing stock.
• Strategic Direction #5 - Use financial tools to facilitate the development of affordable
housing.
• Strategic Direction #6 - Consider approaches to legalize and facilitate the
development of secondary suites.
• Strategic Direction #7 - Introduce municipal programs and mechanisms to direct funds
toward affordable housing initiatives.
• Strategic Direction #8 - Build partnerships that can lead to the development of nonmarket housing projects in the Pemberton area.
• Strategic Direction #9 - Build partnerships that can lead to the development of rental
housing projects in the Pemberton area.
• Strategic Direction #10 - Continue to liaise and facilitate dialogue with key
stakeholders and community groups regarding housing issues.
• Strategic Direction #11 - Advocate to senior levels of government on housing matters
beyond the Village’s jurisdiction.
• Strategic Direction #12 - Provide information and outreach to community members.
Housing Strategy
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TABLE OF CONTENTS
1.0
Introduction................................................................................ 1
1.1 Strategy Development ..................................................................... 1
1.2 Report Structure............................................................................ 2
1.3 A Definition of Affordable Housing....................................................... 2
1.4 The Affordable Housing Continuum...................................................... 3
2.0
Pemberton’s Housing Context.......................................................... 4
2.1 Key Indicators............................................................................... 4
2.2 Factors Affecting Housing Affordability................................................. 6
2.3 Housing Issues and Gaps................................................................... 6
2.4 Target Populations .......................................................................... 9
3.0
An Affordable Housing Strategy for Pemberton.................................... 10
3.1 A vision for Affordable Housing......................................................... 10
3.2 Five Affordable Housing Goals .......................................................... 11
3.3 Five Key Roles for the Village of Pemberton.......................................... 11
4.0
Strategic Directions..................................................................... 12
4.1 Role #1: Setting Policy................................................................... 12
4.2 Role #2: Establishing Regulations .......................................................13
4.3 Role #3: Revenue Generation and Land Banking ..................................... 16
4.4 Role #4: Leveraging Partnerships....................................................... 16
4.5 Role #5: Advocating, Educating and Capacity Building ............................. 17
5.0
Priorities for Implementation ......................................................... 19
6.0
Monitoring & Evaluation................................................................ 22
7.0
Conclusion ................................................................................ 23
Housing Strategy
APPENDICES
Appendix A — References
Appendix B — Study Participants
Prepared for the
Appendix C — Survey Results
Appendix D — Notes from Development Industry Workshop
Appendix E — Selected Affordable Housing Best Practices
Appendix F — Background Report
December 2009
1.0
INTRODUCTION
In recent years, housing issues in Pemberton have become a growing concern for
residents, employers and community leaders alike. Substantial increases in real estate
prices coupled with a scarcity of good quality rental housing have resulted in less
choice in the housing market for a broad range of households. Such housing challenges
have also been linked to Pemberton’s economic and social sustainability with issues
related to accommodating the local workforce, ensuring a safe and secure rental stock,
and creating choice in the housing market for all households.
Both the Village of Pemberton and Squamish-Lillooet Regional District (SLRD) have
recognized the need for policies and mechanisms to increase the supply of affordable
housing in the area, and considerations for affordable housing have been articulated
through a number of recent policies and plans. Still, a comprehensive approach to
emerging affordability challenges is needed.1 In spring of 2009, with financial support
from the UBCM Community Health Promotion Fund, the Village initiated the
development of an Affordable Housing Strategy and commissioned CitySpaces
Consulting to undertake this work.
1.1 STRATEGY DEVELOPMENT
The Affordable Housing Strategy, presented here, builds on the research findings
documented in the Pemberton Affordable Housing Strategy Background Report. The
Background Report outlines the policy, planning and regulatory framework for
affordable housing in Pemberton; presents the facts and factors that underly housing
affordability based on available housing statistics; and identifies preliminary issues and
considerations based on discussions with Village of Pemberton staff, members of the
Affordable Housing Strategy Committee and key-informant interviews. Committee
members and key informants are identified in Appendix B.
To validate the initial Background Report findings, the consultants facilitated a
stakeholder workshop and held a public open house during the month of June. A list of
workshop participants and open house attendees is included in Appendix B. To further
substantiate the initial findings, a community-wide survey was also conducted during
the month of June. The survey was available both on-line and at four locations in
Pemberton — the Mount Currie Coffee Company, the Bank of Nova Scotia, the
Pemberton Health Centre and the new community centre. Results of the survey,
completed by 80 respondents (32 online and 48 hard copy) are attached as Appendix C.
In September 2009, a draft Affordable Housing Strategy was presented to Village of
Pemberton Council. Council provided input and direction to staff and the consultants
to conduct a follow-up workshop with development industry representatives to explore
the potential cost implications of the proposed strategic directions. A workshop was
subsequently held in early December 2009 with development industry representatives
and members of Council providing valuable input to the strategic directions. The
recorded flipchart notes from this workshop are attached as Appendix D. The input
gathered from the workshop was used to revise and finalize the Affordable Housing
Strategy.
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The policy and planning context in Pemberton is described in the Pemberton Affordable Housing Strategy
Background Report (June 2009), attached to this report as a companion document.
1
In summary, this Strategy has emerged from:
• A review of Village of Pemberton and SLRD plans and policies;
• An analysis of housing-related statistics;
• Discussions with Village of Pemberton staff and community stakeholders;
• A community-wide survey;
• Input from Village of Pemberton Council; and
• Consultation with development industry representatives.
1.2 REPORT STRUCTURE
The Affordable Housing Strategy is prefaced by a description of Pemberton’s current
housing context, which identifies factors affecting housing affordability in the
community, the populations most in need and the key issues related to the current
housing supply. Based on Pemberton’s current housing context, a framework for
planning and decision-making is proposed. This framework includes an overarching
vision, five goals for affordable housing, five roles for the Village of Pemberton and a
set of corresponding strategic directions. An implementation plan follows with specific
attention to priorities, roles, timelines and monitoring.
The attached appendices provide background material related to the research and
consultation process (Appendices A, B, C and D). Selected affordable housing best
practices are included in Appendix E. The background report, upon which the
Affordable Housing Strategy is largely based, is attached as Appendix F.
1.3 A DEFINITION OF AFFORDABLE HOUSING
Affordable housing may be defined differently by different communities. In Canada,
the commonly accepted definition for affordable housing comes from Canada Mortgage
and Housing Corporation (CMHC) — housing that costs no more than 30% of a
household’s gross income. In some communities, affordable housing may be defined
more narrowly and targeted specifically to populations earning a percentage of the
median household income.2
In Pemberton, issues related to suitability and quality of the housing stock are
identified as being integral to planning for affordable housing. With this in mind, the
following definition of affordable housing is proposed for Pemberton:
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“Affordable housing refers to housing that enhances the quality of
life of inhabitants of the Pemberton area and costs no more than
30% of the median household income.”
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Where median household incomes are vastly disproportionate to home prices, it may be necessary to use an
adjusted annual median income. For example, the Teton County Housing Authority based in Jackson Hole,
Wyoming aims to provide housing opportunities to employees in Teton County who make less than 120% of the
median income.
2
1.4 THE AFFORDABLE HOUSING CONTINUUM
The affordable housing continuum, illustrated in Figure 1 on the following page,
represents the spectrum of affordable housing types. At the far left of the continuum
are non-market options including emergency shelters for people who are homeless or at
risk of homelessness. At the far right of the continuum are affordable rental and home
ownership options for households with low to moderate incomes. As the continuum
shifts from left to right, the level of government involvement and subsidy declines and
is replaced by a greater reliance on private sector solutions.
Figure 1: Affordable Housing Continuum
Source: CitySpaces Consulting Ltd. 2009
Housing Strategy
In Pemberton, the affordable housing continuum is only partially represented. On the
non-market side, there is no emergency shelter, transitional, or supportive housing.
Social housing and rent supplements are provided to a limited extent: the Pemberton
Lion’s Villa includes eight units for seniors; and ten households are receiving rental
supplements (seven through the Rental Assistance Program (RAP) and three through
the SAFER3 program). However, the Province has recently committed funding for an
18-unit complex through BC Housing’s Seniors’ Rental Housing Initiative.
There is currently no price restricted (below market) housing — a type of housing
typically administered by a housing authority as in the case of Whistler or Ucluelet.
Low cost market housing is available largely through secondary suites although the
Village’s small-lot zoning also provides potential for this type of housing.
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The Shelter Aid for Elderly Renters (SAFER) program provides monthly cash payments to subsidize rents for
BC seniors (age 60 and over) with low to moderate incomes and who are renting their homes.
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2.0
PEMBERTON’S HOUSING CONTEXT
2.1 KEY INDICATORS
Statistics Canada data along with information about recent development and real
estate activity in Pemberton help to inform the housing context. Relevant
demographic, socio-economic and housing indicators are described in the Background
Report. Some of the notable indicators are highlighted here.
2.1.1 Demographic Indicators
• Pemberton is one of the fastest growing municipalities in BC, growing by 6%
per year between 2001 and 2006, compared to the provincial annual growth
rate of 1% per year.
• In 2006, more than half of Pemberton’s population (51%) was between 25 and
44 years of age.
• In 2006, 28% of households were couples with children, 26% of households
were couples without children, 29% of households were singles and 15%
consisted of other household types (multiple-family households, lone-parent
family households and non-family households).
2.1.2 Socio-economic Indicators
• Approximately 21% of Whistler employees reside outside Whistler, primarily
in Squamish or Pemberton. 4
• Compared to 66% BC-wide, 89% of Pemberton’s population participates in the
labour force.
• More than one quarter of the labour force (26%) is employed in sales and
service sector jobs, while 21% is in management and 18.5% is in trades,
transport and equipment (i.e. construction).
2.1.3 Housing Indicators
Housing Strategy
• Pemberton’s housing stock has tripled since 1996 with 70% of new building
starts in multi-family units.5
• There are approximately 1,200 to 1,300 units currently in the development
pipeline, although the Village has experienced a slowdown in development
activity in 2008. 6
• Low-cost market rental housing in Pemberton is limited primarily to
secondary suites. According to the Village of Pemberton, 88 suites have been
permitted while existing illegal suites are hindered by the flood construction
level. 7
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• The Lions Villa is the only seniors social housing development in Pemberton
(although as noted, additional seniors housing is expected to be developed).
4
Personal communication with Marla Zucht, Whistler Housing Authority. August 2009.
5
Village of Pemberton Building Statistics. June 2009.
6 Village of Pemberton Development Services Department. Snapshot 2009: A Community Status report to
inform Pemberton’s future land use and growth policies. May 2009.
7
Personal Communication with Caroline Lamont. Village of Pemberton. June 2009.
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2.1.4 Housing Costs
• Between 2003 and 2008, median real estate prices for single detached homes
in Pemberton more than doubled, while apartment prices virtually tripled.
Single detached home prices increased from $240,000 to $530,000;
townhomes increased from $175,000 to $320,000 and apartments increased
from $90,000 to $270,000.8
• Rents in Pemberton range from $551 for a shared unit to $1,891 for a house
or townhouse with three or more bedrooms. Typical 1-bedroom units rent for
$922 and 2-bedroom units rent for $1,341.9
2.1.5 Housing Affordability
Using estimated household income figures for 2008, Table 2 presents the maximum
purchase price and maximum rents for different types of households earning the
median household income in Pemberton.
Table 1: Estimated Maximum Housing Costs (2008)
Household/Family Type
Median
Income
Available
Income for
Rent (30%)
Maximum
Maximum
Purchase Price Purchase Price
(5% down)
(10% down)
Married Couple Families
$68,500
$1,710
$281,000
$297,000
Single Parent Families
$42,250
$1,060
$148,000
$156,000
One person household
$36,300
$910
$118,000
$124,000
Source: CitySpaces Calculations based on 2006 Federal Census and adjusted to 2008 using
Provincial wage earnings. Mortgage calculations determined using ING-posted rates for fiveyear fixed term at 4.49% (June 2009), 25 year amortization and $350 monthly costs for
property taxes, maintenance fees and utilities.
• Married couples earning the median household income of $68,500 could afford
$1,710 for rent; single parent families could afford up to $1,060 per month; and
one person households could afford up to $910 for rent. While the median-income
household in Pemberton may be able to afford current rents in the area, the
greater challenge is reported to be the availability of suitable and adequate
rental housing units.
• Married couples earning the median-income could afford a home priced at
approximately $297,000 with a 10% down payment. Single parent families could
afford a home priced at approximately $156,000 and one person households a unit
priced at $124,000. Overall, options for home ownership are limited for all
households. First-time home buyers are generally limited to condominium
apartments and those looking to move up the property ladder may not be able to
do so because of limited choice in the market.
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8
Whistler Real Estate Company. June 2009.
9
The Pique Classifieds - Rental Listings in the February and September issues, 2002-2009.
2.2 FACTORS AFFECTING HOUSING AFFORDABILITY
Some of the major factors affecting housing affordability in the Pemberton area include:
• Physical constraints affecting the supply of serviceable land such as floodplain,
agricultural land reserve, steep slopes, slope aspect (sun/shade), and soil/
bedrock conditions;
• Construction costs including high servicing and site preparation costs (i.e. filling
sites upon the floodplain or blasting areas of significant bedrock);
• Costs related to regulatory processes such as rezoning and development
permitting and other development requirements such as geotechnical studies,
landscaping and lighting requirements, off-site servicing, Development Cost
Charges (DCCs) and Community Amenity Contributions (CACs);
• Limited housing supply, as noted by 40% of survey respondents;
• Pemberton’s role as a bedroom community with high demand for housing from
Whistler employees, as noted by 51% of survey respondents;
• High housing costs in relation to personal incomes as noted by 68% of survey
respondents and substantiated by the consultants’ maximum purchase price
calculations; and
• Competition from investment or second home purchasers, as noted by 43% of
survey respondents.
With regard to the last two factors, there is some speculation that the Sea-to-Sky
highway improvements (between Whistler and Vancouver) will increase accessibility to
communities in the corridor. Despite current economic conditions, decreased travel
time to and from the lower mainland is expected to attract increasing numbers of
second-home owners and amenity migrants10 and further stimulate economic
development in the Pemberton area.
2.3 HOUSING ISSUES AND GAPS
Housing Strategy
The research has highlighted gaps in Pemberton’s housing stock and, in particular, a variety
of challenges related to the provision of rental, ownership and non-market housing.
2.3.1 Rental Housing
There are key challenges related to the provision of affordable rental housing in terms
of supply and quality.
• Given the nature of the local economy, there is high demand for rental
accommodation during the ski season, particularly with competition from Whistler
employees. Compounding the issue, the reliance on sales, service and tradesrelated employment results in a disconnect between local incomes and housing
costs.
• There is also an emerging concern that the 2010 Olympic Games may negatively
impact the availability of rental housing to local residents as owners withhold their
rental units to accommodate short-term visitors prior to and during the Games.
The term, amenity migration, was coined by Laurence A.G. Moss in “Beyond Tourism: The Amenity
Migrants” (1994) and refers to the movement of people to places, permanently or part-time, principally because
of the actual or perceived higher environmental quality and/or cultural differentiation of the destination.
10
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• Based on community survey results, concerns regarding rental housing challenges
were noted:
• 62% of respondents indicated that it is difficult or very difficult to find
affordable rental housing.
• 31% of respondents indicated that it is difficult or very difficult to find wellmaintained rental housing.
• 93% of survey respondents indicated that secondary suites are an important
form of rental housing in the Pemberton area.
• Many secondary suites are not registered because they have been in existence for
a long time, were constructed illegally or were constructed beneath the Flood
Construction Level (FCL).11 12
• Key-informants noted that a hostel or dormitory-style development with shared
living quarters could be an asset in the community, serving the transient/shortstay or seasonal populations.
2.3.2 Ownership Housing
Challenges related to affordable ownership housing in Pemberton appear to be less
related to lack of supply than to a lack of housing options in the community. In
particular, key informants and workshop participants suggested that it can be difficult
to get into the market and also to move up the property ladder with typical household
incomes. The lack of housing to accommodate changing household needs was identified
as a significant issue. Young families, in particular, seeking larger homes with private
yards, find that this type of housing product is difficult to obtain while maintaining
affordability. Others noted the lack of housing to accommodate “aging in place”.
Results of the community survey support these findings:
• 73% of respondents indicated that it is difficult or very difficult to find a home
that is affordable.
that is affordable and has enough interior space to meet household needs.
that is affordable and has enough exterior space to meet household needs.
• 54% of respondents indicated that, within the next five years, they will need to
upsize to a larger home to accommodate a growing family.
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• 23% of respondents indicated that, within the next five years, they will need to
downsize to a smaller home.
December 2009
The Flood Construction Level (FCL) is the minimum allowable elevation for a habitable space (above mean
sea level). This height is determined by an engineering assessment of the flood hazard. In new construction,
the underside of a wood floor system or the top of a concrete slab must be no lower than the FCL.
11
The municipalities of Port Coquitlam, Chilliwack, New Westminster and Richmond were contacted
regarding their approach to secondary suite development in flood-risk areas. All municipalities indicated that
illegal suites are enforced on a complaint basis. None of the municipalities authorize secondary suites in
flood risk areas and none have identified options to legalize suites through mitigation techniques. It has been
suggested that Council has authority to permit suites in geologically hazardous areas but that the BC
Emergency Program will not respond to areas where charters have been overridden to allow development in
flood-risk areas. Contacts are identified in Appendix B.
12
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Many of the stakeholders, key-informants and community members involved in the
research suggested that there is a need for a variety of housing forms, sizes and lot
configurations in order to reconcile housing cost with quality of life and to meet the
unique and changing needs of households.
2.3.3 Non-Market Housing
There is currently no non-market housing in the Pemberton area, such as a shelter or
treatment centre, dedicated to the community’s most vulnerable populations.
Discussions with Sea-to-Sky Community Services indicate that the Sea-to-Sky Corridor is
home to a significant and growing homeless population with an estimated 200 homeless
people residing between Squamish and Whistler and an additional 200 homeless people
residing between Whistler and Pemberton. 13 The number of homeless in the Pemberton
area has not been officially documented, although Sea-to-Sky Community Services
suggests that, at any given time, the homeless population will include both people who
are entrenched homeless — living in tents or other substandard shelter — and “hidden
homeless” — those who have no fixed address but arrange temporary shelter with
friends or acquaintances.
This assumption was supported by those involved in the consultation process who
reported there were individuals living in the woods outside Pemberton who had no
other housing options, and others who are living in cars or trailers on private property
because they are unable to obtain short-stay housing. It has further been suggested
that there is often a “temporary homeless” population where individuals arriving in the
community can’t return home due to the lack of public transit.
Studies undertaken by the Joint Winds of Change Committee have identified a need for
both residential treatment services and support recovery services in the Pemberton
Valley.14 Although facilities exist for Lil’wat Nation members and Pemberton residents
outside the region, either in the lower mainland or in Squamish, such services are not
easily accessible particularly due to the lack of public transportation and poor
accessibility to family and community supports.
Housing Strategy
Figure 2:
Single detached dwelling under
construction in the Benchlands,
where construction site preparation
often involves rock blasting.
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Credit: CitySpaces Consulting Ltd.
13
Personal communication with Peter Harker, Sea-to-Sky Community Services. August 2009.
14
Winds of Change: Drug & Alcohol Services Feasibility Study. 2008.
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2.4 TARGET POPULATIONS
Five target groups have been identified that merit specific attention through the
development of an Affordable Housing Strategy. These groups were confirmed by
workshop and open house participants.
2.4.1 Low Income Households
Pemberton’s low income households have difficulty finding secure, long-term housing
that is both affordable and appropriate to their needs. The research suggests that
rental housing is often difficult to obtain and that rental housing prices are often high
in relation to household incomes. Households within this demographic include those on
fixed incomes or those in low-paying service sector jobs.
2.4.2 Seasonal Workers
Seasonal workers are another group that are challenged with finding secure, affordable
housing. Seasonal workers are a vital component of the regional economy —
contributing primarily to Whistler’s tourism economy and, to a lesser extent, farming
activities in the Pemberton Valley. According to the Whistler Housing Authority, 79% of
the winter workforce live in Whistler, while the remaining 21% (2,940) live primarily in
Pemberton or Squamish. 15
2.4.3 Young Households
With 51% of the population between 25 and 44, young households constitute a major
part of the Pemberton community. Young households, including families and individuals,
seeking to move up the property ladder are finding that their options are limited.
Growing families seeking more interior space and secure, private yards are challenged
to find homes which meet their needs, yet fit their budgets.
2.4.4 Seniors
Seniors currently comprise a small proportion (3%) of the population. Still, the lack of
seniors’ housing continues to be a concern, particularly in light of the trend to allow
“aging in place” and the likelihood that today’s young households will eventually
become seniors themselves. Recent studies and work of the seniors housing committee
have explored ways to accommodate the existing and future seniors’ populations
through a range of market and non-market housing options.16 The proposed 22-unit
seniors rental housing facility may largely address the current demand for housing
although, moving forward, other types of seniors’ housing should be considered.
2.4.5 Vulnerable Populations
Based on anecdotal evidence, consideration for vulnerable populations is a necessary
element of the housing strategy. Such populations may include the hidden homeless,
entrenched homeless and temporary homeless in addition to those suffering from
mental health and/or drug addiction problems. However, further research is needed to
identify all vulnerable populations within the Pemberton Valley and also to ascertain
the extent of their needs.
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15
Personal communication with Marla Zucht, Whistler Housing Authority. August 2009.
Notable studies include the Pemberton and Mount Currie Age-friendly Community Project and Pemberton
Valley 55+ Housing Market Study and Financial Feasibility Analysis.
16
3.0
AN AFFORDABLE HOUSING STRATEGY FOR PEMBERTON
The Affordable Housing Strategy is focused on the provision of home ownership, rental
housing and non-market housing with specific attention to Pemberton’s target
populations, including low-income households, young families, seniors, seasonal
workers, and vulnerable populations. A guiding vision and five goals are provided as the
foundation for six key roles and corresponding proposed strategic directions for the
Village of Pemberton.
3.1 A VISION FOR AFFORDABLE HOUSING
The Pemberton Affordable Housing Strategy seeks to “create a mix of rental,
ownership and non-market housing options to meet the diverse and evolving needs of
Pemberton residents”.
Figure 3: Typical multi-family
housing typology in the Pemberton
Plateau neighbourhood.
Photo Credit: CitySpaces Consulting Ltd.
Housing Strategy
Figure 4: Typical multi-family
housing typology in the Pioneer
Junction neighbourhood.
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Photo Credit: CitySpaces Consulting Ltd.
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3.2 FIVE AFFORDABLE HOUSING GOALS
With an understanding of the Pemberton Housing Context and target populations, the
Village of Pemberton shall seek to:
1.
Enhance the supply and quality of rental housing for low income households.
2.
Provide a variety of affordable ownership housing options for young families, first
time home purchasers and those seeking to move up the property ladder.
3.
Encourage housing designed to meet changing household needs and allow seniors
to age in place.
4.
Encourage the development of housing for seasonal workers.
5.
Encourage the provision of housing services and supports for Pemberton’s
vulnerable populations.
3.3 FIVE KEY ROLES FOR THE VILLAGE OF PEMBERTON
The Village of Pemberton has five key roles in delivering affordable housing within
the community:
1.
Setting Policy: Clear, consistently applied policies express the City’s commitment
to affordable housing.
2.
Establishing Regulations: Effective use of regulatory authority creates housing
opportunities to facilitate affordable housing options.
3.
Revenue Generation and Land Banking: Strategic use of Village resources (land,
revenues) can support an increased supply of affordable housing.
4.
Leveraging Partnerships: Collaboration with the business and non-profit
communities, and Provincial agencies can lead to creative solutions to existing and
emerging housing issues.
5.
Advocacy, Education and Capacity Building: Dedication of staff resources,
political leadership and advocacy toward senior levels of government will
demonstrate a commitment to ongoing leadership and contribute to increased
capacity to create affordable housing.
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4.0
STRATEGIC DIRECTIONS
In relation to the five key roles, there are twelve strategic directions. For each
strategic direction, there are specific actions. The actions are intended to achieve
results in a timely fashion, respecting Pemberton’s small community context and
limited resources. The strategic directions, along with their specific actions, aim to
facilitate a mix of affordable housing including rental, ownership and non-market
options while recognizing the unique and evolving needs of Pemberton residents.
4.1 ROLE #1: SETTING POLICY
Clear, consistent policies express the Village of Pemberton’s commitment to affordable
housing. When Village officials meet with prospective developers, funders, partners or
senior government representatives, it is beneficial to have a clear policy framework.
The Official Community Plan (OCP) is the Village’s guiding decision-making framework
for growth and development. Policies to address affordable, rental and special needs
housing are a legislative requirement of the OCP, and as such, will be introduced as the
current OCP (adopted in 1999) is updated. These policies must be appropriate to
Pemberton and should also reflect the regional context.
The draft Squamish-Lillooet Regional District Regional Growth Strategy (RGS) calls for
consistency among affordable housing policies across the region and provides strategic
direction with regard thereto. The RGS specifically directs the adoption of policies and
regulations to support live-work, mixed-use neighbourhoods, and residential
intensification (secondary suites, flex-housing, infill and small lot development);
financial tools (e.g. cash-in-lieu of social housing contributions, waiving DCCs, property
tax exemptions, and land grants); and tools to increase the affordable housing supply
and create housing that is perpetually affordable).
Similarly, housing policies within the Village of Pemberton OCP could be aligned with
the Squamish-Lillooet Regional District Area C Plan (also pending adoption), which
contains specific language and direction around affordable housing: supporting
principles of smart growth; advocating for a range of affordable housing options and
including policies (e.g. secondary suites and cluster housing development, providing for
new and existing mobile home parks, compensating for the net loss of affordable
housing, considering 10%-15% inclusionary zoning, financial contributions to an
affordable housing fund, and density bonuses for the provision of affordable housing).
Policies are intended to provide a wide range of housing forms (i.e. different tenure,
type and price point) to ensure there is choice and diversity of housing for residents.
This would ensure that people and households of all ages and income levels are
accommodated through the local housing market. This would involve the development
of different housing forms across the housing continuum — from non-market housing
through to home ownership.
Strategic Direction #1
Housing Strategy
Prepared for the
December 2009
Draft and adopt affordable housing policies that provide clear and consistent direction
to staff, council and developers.
• Introduce OCP policies to:
• encourage diverse housing forms through a variety of approaches such as
cluster development, manufactured homes, lot-splitting and small-lot
Page 12
development, lock-off units, residential infill/intensification, grow homes 17
and coach houses.
• encourage diverse housing tenures (e.g. fee simple ownership townhouses
and rowhouses as an alternative to stratified townhouse condominiums. With
municipal support and the use of party wall agreements, fee simple
rowhousing projects have been recently introduced in a number of Lower
Mainland communities18).
• protect and enhance the supply of rental housing introducing incentives to
encourage new single detached homes to be “secondary suite ready”.
• support the development of short-stay rental housing.
• support the development of non-market housing.
• restrict the rental of private homes for nightly/tourism purposes.
• support accessory housing for employees working in industrial areas (while
maintaining primarily industrial uses).
• support accessory housing for employees working in agricultural areas (while
maintaining primarily agricultural uses).
• Acknowledge that affordable housing is an important community amenity to be
considered for inclusion with major development applications (on par with parks,
recreational facilities, public art and other services) subject to the project’s
location and form.
• Develop a policy statement on manufactured home parks to supplement the
requirements of the Manufactured Home Park Act. The intent behind this policy
statement would be to further address the issues of tenant displacement and loss
of affordable housing.
4.2 ROLE #2: ESTABLISHING REGULATIONS
Regulatory mechanisms such as subdivision, zoning and building bylaws are the most
direct tools available to municipalities to facilitate the development of affordable
housing. Periodically, bylaws need to be reviewed to ensure they do not hinder the
development process. This is also necessary to facilitate the legalization of existing
secondary suites, encourage more suite construction and encourage innovative and
affordable land use applications and housing forms.
Housing Strategy
Prepared for the
Streamline the development review process and remove barriers to affordable
housing development.
• Proactively review Village zoning, subdivision and building bylaws to ensure
regulations and standards are not a barrier to affordable housing development.
It is recommended that members of the development community continue to be
Avi Friedman’s Grow Home gives people what they need in a house at an affordable price - a quality
product that allows both the perimeter and interior of a house to be expanded and changed to fit the space
needs and budget of its owners.
17
Parklane Homes’ Bedford Landing in Langley (http://www.bedfordlanding.com/) and Aragon’s Port Royal
development in Queensborough, New Westminster (http://www.portroyalhomes.ca/)
18
December 2009
Page 13
involved in this process to collaboratively identify process barriers and
improvements to facilitate the development of affordable housing.
• Revise the Village’s current approach to Development Cost Charges for residential
development19 to a per square metre basis rather than a per unit basis and
decrease DCCs for rental housing restricted to local employees. This would
benefit developers of smaller sized units and, potentially, incentivize more
innovative, compact housing and affordable rental housing.
• Designate and/or rezone lands that are appropriate for new housing development.
• Work towards clarifying unknown development requirements within existing
policies and regulations, rather than adding new requirements and costs during
the development review process.
Amend regulations to encourage innovation in the design and planning of new
residential construction as well as residential redevelopment and infill projects.
• Review Section 508 of the zoning bylaw and consider reducing parking
requirements for housing projects.
• Introduce conditional regulations in the zoning bylaw and development permitting
to encourage infill and intensification of the RS1 zone. This includes lot splitting,
backyard infill, front-back duplexes, triplexes and fourplexes.
• Continue to encourage rezoning applications to facilitate innovative and
affordable housing.
Amend zoning regulations to facilitate the development of accessory suites as a means
of increasing the rental housing stock.
• Review RS2 (small-lot) regulations and incorporate relaxation of lot width to 9.1
m (30 feet) subject to certain conditions that ensure that other zoning
requirements can be satisfied.
Housing Strategy
• Allow secondary suites as accessory uses on small lots subject to certain
conditions that ensure other zoning requirements can be satisfied.
• Allow new multi-family developments to incorporate lock-units20 (or flex units) as
accessory uses. “Lock-off units” can be found in resort and university
communities21 as they are often suitable for short-term occupants (e.g. seasonal
workers).
• Amend Section 208 of the zoning bylaw (accessory single residential use) reducing
the minimum floor area of accessory suites to 35 m2.
19
December 2009
The Village has commenced this process. Personal communication with Caroline Lamont. September 2009.
A lock-off unit can be generally defined as a self-contained dwelling unit within, but separate from, a
multi-family housing unit, which may have independent access to the exterior or common area within the
building.
20
Lock-off units can be found in a number of resort communities including Lake Tahoe and Vail. They have
recently been introduced locally in Burnaby (Verdant at SFU UniverCity), Vancouver, and Langford.
21
Prepared for the
Page 14
• Amend Section 210 to allow an accessory suite in a duplex or townhouse dwelling
subject to certain conditions that ensure that other zoning requirements can be
satisfied.
• Increase the maximum height of accessory buildings in the RS1 (residential) zone
to accommodate coach houses or suites above garages.
• In the Downtown core, parking requirements for accessory suites could be waived
entirely if the units are restricted (with a covenant on title) as rental housing for
local employees (and where employee parking has already been applied to
corresponding commercial uses).
Use financial tools to facilitate the development of affordable housing.
• Continue to support and maintain a consistent approach to density bonusing as a
mechanism to increase the supply of affordable housing.
Consider approaches to legalize and facilitate the development of secondary suites.
The Background Report and subsequent community survey confirm that secondary
suites are a vital component of Pemberton’s rental housing stock. While the current
zoning bylaw allows secondary suites in single detached homes, there is an opportunity
to support the development of new suites and improve the safety of existing suites —
namely those beneath the FCL.
• Research and formalize “alternative life safety standards” and amend the Building
Bylaw to require compliance with “alternative life safety standards” for existing
suites. Maintain “compliance with the BC Building Code” for new-build situations.
• Consider reducing the utility rate for legal secondary suites to no more than 40%
of the rate for the primary unit.
• Encourage all new single detached homes to be “suite ready” to enable a portion
of a home to be utilized as a secondary suite if needed. The philosophy underlying
this approach is based on the assumption that the various households which
occupy a home during its lifetime will have different needs. Furthermore, making
a home “suite ready” from the start is generally less costly than it would be to try
to retrofit an existing home. Typically, where “suite ready” programs are in
place, provisions are made for independent heating systems (e.g. gas fireplace in
the future suite area); fire separation; inter-connected smoke detection; and a
separate entrance to the unit from the exterior.
• Introduce a Standards of Maintenance bylaw for rental housing. Local
governments can enact standards of maintenance bylaws to enforce basic levels
of maintenance for rental accommodation. The bylaw can be used to ensure
apartment buildings, secondary suites and other dwellings that are rented meet
minimum standards for comfort and safety. In the case of secondary suites, a
complaint by a tenant under this bylaw could result in an unauthorized suite being
required to upgraded to meet the required standards without necessarily being
shut down for non-compliance with other bylaws (e.g. zoning).
Housing Strategy
Prepared for the
December 2009
Page 15
4.3 ROLE #3: REVENUE GENERATION AND LAND BANKING
Introduce municipal programs and mechanisms to direct funds toward affordable
housing initiatives.
• Establish a housing reserve fund and terms of reference for the operation of the
account. A housing reserve fund can be used to purchase land for the purposes of
affordable housing and/or to provide grants to non-profit housing providers and
support other affordable housing initiatives. A housing committee could be set up
to advise on the allocation of affordable housing dollars in the housing reserve
fund by developing criteria for project selection and expectations.
• Direct funds from density bonusing initiatives or other sources that are earmarked
for affordable housing into the Village’s housing reserve fund.
• For non-profit housing providers, consider providing grants in lieu from the
housing reserve fund to offset the costs associated with Development Cost
Charges (DCCs) or other permit fees on a case-by-case basis.
• Establish a land reserve and terms of reference for the management of the
reserve. Similar to the housing reserve fund, the Village of Pemberton can create
a land reserve or land bank as a mechanism for acquiring a supply of serviceable
land for the purpose of affordable housing. A housing committee should advise on
the acquisition and disposition of reserve land.
• Use land within the reserve for the purpose of developing a short-stay rental
housing project or shelter, supportive or transitional housing facility.
4.4 ROLE #4: LEVERAGING PARTNERSHIPS
Build partnerships that can lead to the development of non-market housing projects in
the Pemberton area.
Local governments throughout BC partner with the Provincial government and nonprofit agencies and housing providers to develop and acquire housing for low income
households. The Village of Pemberton previously partnered with the Lions and BC
Housing to obtain funding for 18 units of subsidized rental housing for seniors.
• Build and strengthen partnerships with other agencies (i.e. BC Housing, the SCRD,
Lil’Wat First Nation and Sea-to-Sky Community Services). 22
Housing Strategy
Prepared for the
• Working proactively with partner agencies to identify the population groups who
are most in need of housing and support services in the Pemberton area.
• Collaborate with BC Housing and leverage partnerships to develop an emergency
shelter or supportive housing for vulnerable or special needs populations. The
Village could provide community grants, make land contributions or expedite
approvals to facilitate such a development.
December 2009
Page 16
22
It is important to build on partnerships such as the Pemberton - Mount Currie Joint Winds of Change.
Build partnerships that can lead to the development of rental housing projects in the
Pemberton area.
Partnership opportunities offer the greatest chance of success at developing purposebuilt rental housing projects given current market conditions. Below-market or donated
land would be required alongside additional incentives in order to make rental housing
financially viable.
• Pursue partnership opportunities with the private sector and government and
investigate the feasibility of developing a short-stay rental project (e.g. dormitory
style rooms with shared living areas or small units). 23 The Village could provide
financial grants, make land contributions or fast-track the review process.
4.5 ROLE #5: ADVOCATING, EDUCATING AND CAPACITY BUILDING
The Village can demonstrate its commitment to affordable housing through
strengthening the housing policies within the Official Community Plan and by pursuing
the recommended directions within this housing strategy. Ongoing leadership would
further involve advocacy to senior levels of government and capacity building within
the community.
Continue to liaise and facilitate dialogue with key stakeholders and community groups
regarding housing issues.
• Establish an affordable housing or housing advisory committee to consider future
housing issues, undertake regular monitoring and evaluation of the Affordable
Housing Strategy (and actions) and advise on the housing reserve fund and housing
land reserve.
• Encourage the formation of a liaison group with representatives of the
development community active in the Pemberton area.24 This group could act as
an advisory board for planning and regulatory issues.
Housing Strategy
Advocate to senior levels of government on housing matters beyond the
Village’s jurisdiction.
• Seek funding from provincial and federal government agencies to conduct an FCL
Reduction Analysis.
• Advocate to the provincial government to review and consider relaxations to flood
control related requirements for residential construction, without reducing flood
hazard protection levels. This would include consideration of secondary suites in
houses on the floodplain.
An example of this type of project would be the 180-unit hostel developed as part of the Whistler Athletes
Village for the 2010 Olympics. Following the Olympics, the hostel will provide short-term and budget
accommodation. The hostel was developed through a partnership between Hostelling International Canada
and theWhistler 2020 Development Corporation (WDC), a wholly owned subsidiary of the Resort Municipality
of Whistler (RMOW).
Prepared for the
December 2009
23
A candidate group may be the Canadian Home Builders Association - Sea to Sky Chapter, which (according
to the chapter website at www.chbaseatosky.com) serves the Sea to Sky Corridor including Mount Currie,
Pemberton, Whistler, Squamish & Furry Creek.
24
Page 17
• Advocate to the federal government through the Federation of Canadian
Municipalities and other advocacy groups regarding tax disincentives and other
barriers that inhibit the development of new purpose-built rental housing.
Provide information and outreach to community members.
• Use the Village of Pemberton website to provide housing information and to
promote housing programs and initiatives.
• Arrange for the Residential Tenancy Branch (RTB) to host a presentation
regarding the rights and responsibilities of landlords and tenants well in advance
of the 2010 Olympics.
• Provide information about existing government programs:
• The BC Housing Rental Assistance Program provides cash assistance to eligible
low-income, working families with at least one child under age 19 and a
household income less than $28,000 per year.
• The BC Housing Shelter Aid for Elderly Renters (SAFER) program provides cash
payments to subsidize rents to residents who are 60 or over.
• The CMHC RRAP (Residential Rehabilitation Assistance Program) program
offers a forgivable loan for the creation of a secondary suite for low-income
seniors or adults with disabilities. The Village can promote the program
among resident homeowners.
• Provide information and educational opportunities to residents and potential
residents to encourage home ownership and create successful home owners.
• Educate landlords about building and electrical code requirements, alternative
life safety standards and minimum maintenance standards for rental housing.
• Develop and distribute information (e.g. fact sheets) on innovative housing
forms and concepts (e.g. shared equity or co-housing models) to encourage
innovation in housing.
Housing Strategy
Prepared for the
December 2009
Page 18
5.0
PRIORITIES FOR IMPLEMENTATION
A general timeline is proposed for implementing the Affordable Housing Strategy, which
acknowledges the Village’s limited resources. Short-term priorities are immediate and
intended to be addressed in the first half of 2010. Medium priorities are intended to be
addressed over a two-year time horizon including 2010 and 2011. Long-term priorities
are identified as those that will are more complex in scope and will require a longer
time frame to implement. These may be completed from 2012 onward. A prioritization
table is presented below.
Strategic Directions & Actions
Short-term
Priority
Medium-term
Priority
Long-term
Priority
1. Provide clear and consistent policies
‣ Introduce new OCP policies to support
diverse housing forms and tenures
‣ Acknowledge affordable housing in the
Community Amenity Policy
‣ Develop a manufactured home park policy
statement
2. Streamline regulatory review process
‣ Review Village subdivision, zoning and
building bylaws with development community
‣ Revise approach to calculating DCCs for
residential development
‣ Designate and/or rezone lands appropriate
for new housing development
‣ Clarify development requirements in existing
policies and regulations
3. Amend regulations to encourage innovation
‣ Review zoning requirements for parking and
consider revising requirements for housing
‣ Introduce conditional RS1 zoning regulations
to allow for infill/intensification
Housing Strategy
ongoing
Prepared for the
December 2009
‣ Encourage rezoning applications for
innovative affordable housing projects
4. Amend regulations for accessory rental suites
‣ Zoning amendments to facilitate accessory
rental suite and lock-off suite development
Page 19
‣ Introduce restrictive covenant when parking
waived for employee housing in downtown
Short-term
Priority
Medium-term
Priority
Long-term
Priority
5. Use financial tools
‣ Ensure a consistent approach to density
bonusing to facilitate affordable housing
6. Legalize/facilitate secondary suites
‣ Consider reducing the utility rate to no more
than 40% of the primary unit for legal suites
‣ Introduce alternative life safety standards
and amend building bylaw
‣ Create incentives to encourage new single
detached homes to be secondary suite ready
‣ Introduce a standards of maintenance bylaw
7. Municipal programs/mechanisms to fund affordable housing
‣ Establish a housing reserve fund
‣ Establish a land reserve
8. Leverage partnerships to develop non-market housing
‣ Build and strengthen partnerships with BC
Housing, SCRD, Lil’Wat, and Sea-to-Sky
Community Services
ongoing
Housing Strategy
‣ Identify population groups in need
‣ Leverage partnership to develop an
emergency shelter or supportive housing
Prepared for the
9. Leverage partnerships to develop short-stay rental housing
‣ Leverage partnership to develop a short-stay
rental project
10. Liaise with key stakeholders and community groups
December 2009
‣ Establish a housing committee
‣ Establish a developer liaison group
Page 20
Short-term
Priority
Medium-term
Priority
Long-term
Priority
11. Advocate to senior levels of government
‣ Explore FCL Reduction Analysis
‣ Advocate to the provincial government to
reconsider flood control requirements
‣ Advocate to the federal government to
remove barriers to purpose-built rental
12. Provide information and outreach
‣ Use the Village website to provide
information
ongoing
‣ Arrange for the RTB to provide a presentation
on tenant/landlord rights and responsibilities
ongoing
‣ Provide information about existing
government programs
ongoing
‣ Provide educational opportunities regarding
home ownership
ongoing
‣ Educate landlords about codes, alternative
life safety and maintenance standards
ongoing
‣ Provide information on innovative housing
forms and concepts
ongoing
Housing Strategy
Prepared for the
December 2009
Page 21
6.0
MONITORING & EVALUATION
Over time, the housing needs of Pemberton residents will undoubtedly change due to
fluctuating market conditions. At the present time, there is speculation that the
upcoming 2010 Olympic Games are exerting pressure on the housing market, and that
this pressure may subside once the Games have concluded, particularly once the stock of
affordable units are released in Whistler. There is also speculation, however, that
Pemberton will become increasingly attractive to amenity migrants seeking a piece of
paradise in the mountains and thereby driving up demand and corresponding costs for
housing -- as has been the case in numerous mountain communities. The future is
uncertain.
Because of the potential for changing market conditions and corresponding changes in
the community’s housing needs, regular review, monitoring and updating of the
Affordable Housing Strategy is important. Ongoing research and assessment of
affordable housing needs in relation to Village of Pemberton policies and priorities will
ensure that strategic directions for affordable housing continue to be valid and
effective. The following steps are recommended:
• Monitor and report annually on the implementation of the affordable housing
strategic directions and status of affordable housing development. A “current
conditions” snapshot or report card may be used to assess the priority housing
issues of the day and the extent to which the Affordable Housing Strategy is in
line with these issues.
• Every five years (following the completion of the federal census), revisit the key
indicators of housing affordability (as identified in the Background Report) to
evaluate local housing needs and housing affordability.
• Amend the strategic directions as necessary to reflect changing housing conditions.
• Amend municipal policies and regulations as necessary to address affordable
housing needs.
The consultants recognize that the implementation and monitoring of a comprehensive
affordable housing program is challenging for small municipalities with limited budgets
and staff resources. For this reason, it is recommended that a volunteer housing
committee be utilized (as directed under Strategic Direction #10) where possible to
consider and advise on housing-related matters. Two purposes will be served: (i) to
minimize the burden on municipal resources; and (ii) to help build capacity to support
an affordable housing program in perpetuity.
Housing Strategy
Prepared for the
December 2009
Page 22
7.0
CONCLUSION
The Village and the community at large have expressed a desire to take action to
address affordable housing in the Pemberton area. The research on housing conditions
has confirmed the need for a comprehensive strategy to address housing affordability,
quality and diversity for a range of population groups including: low-income residents,
seasonal employees, young households, seniors and vulnerable populations.
The 2009 Affordable Housing Strategy aims to address the needs of each population
group through actions which are suited to the community’s specific needs, while
recognizing the Village’s limited resources. The Strategy does, however, place the onus
upon the Village, including its staff and Council, to provide leadership in
implementation. The Strategy is also strongly reliant upon the development of
partnerships with other government agencies, developers and the community in order
to build the needed capacity to achieve the actions identified within the twelve
strategic directions.
It is also recognized that, over time, the community’s needs may change and that the
Affordable Housing Strategy will have to be adapted to meet these changing conditions
and emerging priorities accordingly. For this reason, the Village of Pemberton will
have to remain proactive in monitoring the strategy, reporting annually on the progress
within the strategic directions and comprehensively reviewing the strategy every five
years. The ongoing implementation of this Housing Strategy will demonstrate the
Village’s continuing commitment to affordable housing and choice for residents of all
ages, incomes and abilities.
Housing Strategy
Prepared for the
December 2009
Page 23
APPENDIX A - REFERENCES
Canada Mortgage and Housing Corporation, CitySpaces Consulting Ltd. and Urban Futures Inc. The
Impact of the 2010 Olympics on the Vancouver and Sea to Sky Housing Markets. 2006.
Coughlin, S. Needs Assessment, including Seniors Housing Survey Results. Prepared for the Pemberton
Lions Activity Society. July 2008.
Ekistics Town Planning. Benchlands Neighbourhood Concept Plan. 2007.
Gerotech Research Associates. Pemberton and Mount Currie Age-friendly Community Project. Report
submitted to the Pemberton Mount Currie Winds of Change Committee. 2007.
Lumina Services Inc. Pemberton Valley 55+ Housing Market Study and Financial Feasibility Analysis.
Final Report. 2008.
Ministry of Housing and Social Development. “New Seniors Housing for Pemberton.” BC Housing News
Release. April 8, 2009.
M.G. Bach Management Group Ltd. Joint Winds of Change Committee of the Mount Currie Band and
Village of Pemberton. Drug and Alcohol Treatment Options Feasibility Study. 2008.
Moss, Laurence A.G. Beyond Tourism: The Amenity Migrants. 1994.
Pemberton/Mount Currie Drug and Alcohol Task Force. Winds of Change: A Healing Vision. Final Report.
2004.
Province of British Columbia. Community Charter. Chapter 26. SBC 2003.
Province of British Columbia. Local Government Act, Part 26 - Planning and Land Use Management.
RSBC 1996.
Stantec Consulting Ltd. Pemberton and Area Sub-regional Land Use Planning Study. Prepared for the
Squamish-Lillooet Regional District, Village of Pemberton and Lil’Wat Nation. 2007.
Statistics Canada. Census — Community Profile Tables. 1996, 2001, 2006.
Squamish-Lillooet Regional District. Area C Official Community Plan. Draft, 2008.
Squamish-Lillooet Regional District. Regional Growth Strategy. Draft, 2008.
The Pique. Rental Classified Listings. February and September Issues — 2002—2009.
Village of Pemberton. Bylaw No. 466-2001. Zoning Bylaw. 2001.
Village of Pemberton Development Services Department. Snapshot 2009: A community status report to
inform Pemberton’s future land use and growth policies. 2009.
Village of Pemberton. Official Community Plan. 1999.
Village of Pemberton. Strategic Plan 2005.
Whistler Housing Authority. Employer Housing Needs Assessment. 2008.
Whistler Real Estate Company. Sales Statistics. 1992—2009.
APPENDIX B - STUDY PARTICIPANTS
AFFORDABLE HOUSING STEERING
COMMITTEE
Jordan Sturdy, Mayor, Village of Pemberton
Lisa Griffith, Planner, SLRD
Rick Staehli, Resident
Kirsten McLeod, Pemberton Supermarket
MUNICIPAL STAFF RESOURCES
Caroline Lamont, Manager of Development
Services/Project Manager
Jill Brooksbank, Communications
Suzanne Belanger, Development Services
VILLAGE OF PEMBERTON COUNCIL
• Mayor Jordan Sturdy
• Councillor Lisa Ames
• Councillor Susie Gimse
• Councillor Ted Craddock
• Councillor Alan leBlanc
WORKSHOP & OPEN HOUSE PARTICIPANTS
• Lisa Ames
• Susie Gimse
• Garth Phare
• Drew Meredith
KEY INFORMANTS
• Peter Harker, Sea to Sky Community
Services
• Jordan Sturdy
• Kim Needham
• Michael Hutchison, Bethel Corporation
• Alan leBlanc
• Bruce McFadden, Pemberton Foundation &
Seniors Housing Committee
• Caroline Lamont
• Michael Rosen, Planning Consultant
• Nolan Cox, Pemberton Secondary School
Principal
• Garth Phare, Signal Hill Homes
• Shane Pedrini, Contractor
• Tom Horler, Chamber of Commerce/
McDonald’s Restaurant
• Rick Staehli
• Eric Prall
• Don Coggins
• Pat Saintsbury
• Tim Sutherland
• Gail McKellar
• Christiane Bless
• Gayle Andrews, Mt. Currie Band
• Rosalind Steel
• Tina Rizutti, Former Resident Renter
• Lori Pilon
• Norm Leblanc, Lizzie Bay Logging
• Ivan Knowles
• Tim Arthur, Port Coquitlam Planning
Department
• Gayle Andrews
• Jillian Villeneuve, Chilliwack Development
Department
• Brian Young
• Dave Guiney, New Westminster
Development Services Department
• Bruce Van Mook
• Lisa Griffith
• Richard Nicolas
• Ted Craddock
APPENDIX C - AFFORDABLE HOUSING SURVEY RESULTS
APPENDIX D - DEVELOPMENT INDUSTRY REPRESENTATIVES WORKSHOP NOTES
SETTING POLICY
• encourage, not require, new single detached homes to be secondary suite ready
• cost of suites built at time of original home construction is estimated to be 10-15% less than suites
built in existing homes
• area construction is to a higher standard than the BC Building Code
• don’t make suites a requirement but incentivize
• houses over a certain size could be required to have suites
• financing costs/underwriting
• explore incentives
• decreased costs to homeowner later vs. initial costs of construction
• reduce DCCs one incentive
• CMHC programs to help create suites
• reduce municipal taxes
• reduce building inspection fees
• be careful with approach to DCCs
• community amenity contributions should produce community amenity in a timely manner
• affordable housing is a community amenity on par with other amenities (e.g. parks)
• affordable housing could be considered a community amenity in some projects
ESTABLISHING REGULATIONS
• integrate affordable housing with new development
• more DCC discussion needed
• amend DCCs to encourage affordability (small lots, small units)
• lower DCCs if suites constructed legally
• fast tracking is not applicable; all processes should be streamlined
• remove the “oh by the way” from the process; know what requirements are needed at the
beginning (e.g. streamlining development fees collection)
• eliminate variables from the development review process (i.e. breach flow analysis)
• SLRD has an updated fees bylaw
• pre-designate lands for affordable housing; use density bonusing/amenity zoning
• eliminate the 6-12 month rezoning processes
• parking is an issue with multiple rentals on properties
APPENDIX D - DEVELOPMENT INDUSTRY REPRESENTATIVES WORKSHOP NOTES
• encourage transit
• parking off-street; community parking
• downtown parking needs to be dealt with; downtown serves larger regional area so needs parking
• need a parking/transit strategy
• conditional zoning to RS1
• there is support for coach houses (example of City of North Vancouver)
• small lots parking issue
• consider snow storage, snow guards
• need a meeting to discuss parking issues
• allow flex units/lock-offs in new multi-family housing developments
FINANCIAL TOOLS
• provide land
• reduce the regulatory process requirements to produce non-market housing which is affordable
• need to reduce costs of process
• eliminate land costs to make a rental project affordable/viable
• due diligence on certain sites needed
• consider costs associated with the building code and building bylaw
• standards of life safety needed
• explore borrowing potential through municipal finance authority
• explore tax increment financing
USING RESOURCES
• short stay housing needed for Pemberton? not for Whistler workers; perhaps for farm workers
• could have RV parking/temporary on-site worker housing
• look at development permit requirements to facilitate this type of temporary use
• use development/building representatives for the liaison group
• do a breach flow analysis to reduce the flood control level and reduce costs
FINAL COMMENTS
• implement strategic directions in a timely manner
• host a community non-development workshop
• take a big picture / regional approach to affordable housing
APPENDIX E - SELECTED BEST PRACTICES IN AFFORDABLE HOUSING
This document brings forward a small selection of examples of affordable housing best practices
occurring throughout North America. Examples have been divided into the following categories:
• Market Rental Housing
• Market Ownership Housing: Infill/Intensification Policies
• Density Bonus Initiatives
• Reducing Costs
• Inclusionary and Affordable Ownership Housing
• Innovative Financing/Partnerships
MARKET RENTAL HOUSING
City of Coquitlam Secondary Suites: Alternative Life Safety Standards
The City of Coquitlam has an established set of building code equivalencies — “alternative life safety
standards” — for secondary suites for houses that were built before July 1, 2000. This is intended to
reduce the costs of legalizing existing suites. These standards allow lower ceiling heights, alternatives
to sprinklers and existing heating systems. The information is available in an accessible “plain
language” document on the City’s website. (www.coquitlam.ca)
Nanaimo: Rooming Houses Policy
In 2008, the City of Nanaimo amended its Official Community Plan to include a policy on rooming
houses. The policy encourages rooming houses in existing single family dwellings and/or purpose-built
facilities throughout the city. Homes or purpose built facilities must be in keeping with the character of
the area, comply with Building Code regulations, and should be equitably distributed throughout
neighbourhoods. (www.nanaimo.ca)
Province of British Columbia Office of Housing and Construction Standards: Model
Standards of Maintenance Bylaw
BC local governments can enact a standards of maintenance bylaw to enforce basic levels of
maintenance for rental accommodation. A standards of maintenance bylaw can be used to ensure that
apartment buildings, secondary suites, houses and condominiums that are rented and any other types
of rental housing meet minimum standards of comfort and safety. A model standards of maintenance
bylaw may be obtained from the Office of Housing and Constructions Standards website.
(www.housing.gov.bc.ca/housing/guide.html)
MARKET OWNERSHIP HOUSING: INFILL/ INTENSIFICATION POLICIES
City of Vancouver: Kingsway and Knight Housing Area Plan
In 2004, a Housing Area Plan for the Kingsway and Knight area was adopted. The Plan included two new
residential zones: a Courtyard Rowhouse and Small House/Duplex Zone. These zones were intended to
deliver housing that includes many of the desirable features of a single family home while providing a
more affordable alternative. The Plan allows for incremental development to occur in the existing
neighbourhood without the need for large land assemblies. All new development is subject to
guidelines to ensure attractive building design, quality materials, landscaping and neighbourhood fit.
(www.vancouver.ca)
City of Coquitlam: Southwest Coquitlam’s Housing Choice Study
In 2007-08, the City undertook a study and identified strategic recommendations to facilitate the
implementation of infill and intensification of low density neighbourhoods. This included
neighbourhood area plan policies, a zoning bylaw review, and the development of checklists, design
guidelines and conditions to enable and encourage the redevelopment of single detached housing to
triplex, duplex with coach house, fourplex, and small lot configurations. (www.coquitlam.ca)
Port Coquitlam: Freehold Tenure Row Housing
In 2003, the City of Port Coquitlam amended its Official Community Plan to allow for a new RM-3R zone
in areas designated for apartments to accommodate freehold tenure row housing projects. Various
sections of the zoning bylaw were also amended to accommodate the new use and small lots. New
development applications do not require an OCP Amendment. (www.city.port-coquitlam.bc.ca)
District of Delta: Coach House Zone
In 2007, Delta adopted zoning bylaw amendments to the RS9 coach house zone. The amendments
provide opportunities for alternate housing forms, less interruption of existing street forms, and
greater compatibility with adjacent residential development. In 2008, the District published design
guidelines for housing and coach housing in the community of Ladner. (www.corp.delta.bc.ca)
City of Vancouver’s Laneway Housing
In June 2009, Vancouver City Council adopted guidelines for laneway housing in the RS1 and RS5
residential districts. The guidelines include provisions for building quality, durability and expression;
scale and massing; privacy; lane frontages and landscaping. Notably, laneway houses are generally
located in the space where a garage would be permitted. By regulation, they may not be strata-titled;
require one on-site parking space and may be up to 750 sf in size. (www.vancouver.ca)
DENSITY BONUS INITIATIVES
City of Burnaby: Community Benefit Bonus Program
Through the Community Benefit Bonus Program, the City of Burnaby facilitates the development of
affordable housing and amenities in distinct parcels in town centre areas. Bonus density is used in
conjunction with comprehensive development zoning. Burnaby adopted the City of Vancouver’s formula
for calculating contributions: Bonus Floor Area (sf) multiplied by Market Land Value ($ per buildable sf).
The value of the amenity received is equivalent to the increased value of the property arising from the
density bonus. The density bonus bylaw sets the conditions by which the maximum floor area ratio
(FAR) may be increased. (www.burnaby.ca)
City of Vancouver: Density Bonusing
The City of Vancouver has density bonusing policies in local area plans that permit increases in height
and density and reductions in parking requirements for new developments. Density bonusing is used to
leverage public amenities, which may include affordable housing. The Oakridge/Langara planning
policies provide opportunities for an increase of up to 20% in density to encourage the provision of City
desired public amenities. (www.vancouver.ca)
REDUCING COSTS
Verdant (Simon Fraser University, Burnaby)
Targeting Simon Fraser University faculty and staff, The Verdant is a 60 unit strata-titled stacked
townhouse in Burnaby Mountain that provides affordable homeownership units at 20% below those of
comparable market housing in Burnaby.
• The project, completed in 2007, is based on a partnership between SFU Community Trust, VanCity
Enterprises and ReSource Rethinking Building Inc. SFU provided the land at a discounted price
(50% of market value) and bought back 20 units to be managed by the university as rental housing
for staff and faculty.
• To further reduce project costs, ReSource Rethinking Building provided development management
services on a fixed fee basis, and lower marketing costs were achieved by using a direct
marketing approach.
• With a reduced cost base overall, debt servicing costs were inherently reduced. VanCity also
provided innovative financing in the form of preferential mortgage terms with low interest rates
and longer amortization rates. Home ownership equity was based on a fixed return option.
• The long term affordability of the project is ensured by restrictive covenant to control resale and
thereby limit price appreciation relative to that of adjacent developments.
• The City of Burnaby also eliminated a second set of development cost charges for secondary suites
development as part of the mixed use development which allows suites in strata townhouses or
apartments. These “multi-family flex units” are dwellings containing a defined area for potential
rental accommodation. The units, if rented, must be registered with the student housing registry
at the university. (www.verdantliving.com)
Lancaster Net Zero Energy Live/Work Townhomes (Oakland, California)
As a demonstration project, Zeta Communities developed a net zero energy, urban infill, townhome
project in Oakland, California. The homes are 1,540 sf, zero lot line, live/work units incorporating a
ground floor work studio, 2-bedrooms, amenity spaces and sustainable landscape and a one-car garage.
The homes, incorporating photovoltaics, automated energy controls and high-performance insulation,
are certified LEED platinum and projected to produce more energy than they consume. Because they
are constructed in a factory off-site, the homes are manufactured at a significantly lower cost than to
build on site. (www.zetacommunities.com)
INCLUSIONARY AND AFFORDABLE OWNERSHIP HOUSING
Inclusionary housing policies are intended to facilitate secure, suitable, affordable housing for a
community’s working population unable to find such housing in the open market. There are often
restrictions on price, income and/or residency to ensure that target populations are reached.
Affordable Home Ownership (City of Langford, BC)
In March 2004, the City of Langford (Greater Victoria) adopted a housing policy to deliver affordable
single detached dwellings in new subdivisions through an amenity zoning bylaw using the density
bonusing provisions of the Local Government Act.
• In December 2007, the City updated its policy to identify the neighbourhoods to which the
amenity requirement applies. In these areas, rezoning applications of 10 or more “single
residential” lots must include small lot affordable lots. For each group of 10 single detached lots,
the development is required to provide one affordable housing unit.
• Council may agree to allow one or more affordable housing units to be provided on a site different
than that being developed, subject to the location being confirmed prior to approval of the
bylaw.
• An affordable housing agreement is signed between the developer and the City of Langford to
restrict the maximum sale price to $165,120 (August 2009) to qualified purchasers. After the first
five years, the owner is permitted to increase the sale price by $2,000 for each year of the
ownership period. After 25 years, the home may be sold at market value.
• The City’s Affordable Housing Committee reviews the applications of prospective purchasers to
determine eligibility and need. The Committee controls the transfer or resale of affordable homes
for a period of five years and selects subsequent purchasers. The maximum household income to
be eligible for this housing is $60,000. (www.langford.ca)
Boulder, Colorado
The City of Boulder has a 40-year history of making affordable housing a reality and is approaching its
goal of setting aside 10 percent of local housing as “permanently affordable” (approximately 4,500
homes). In the last seven years, 1,000 permanently affordable homes were made available and 200
more are expected between 2008 and 2009. Of this number, 61 percent of units are intended for rental
and 39 percent for homeownership. These homes are available to households with incomes between
30% and 80% of the Annual Median Income.
• In 2007, the median price for a detached home in Boulder was $540,000 and $242,000 for a
townhouse condominium. In 1980, the City began to enter into contracts with developers,
requiring the inclusion of modest-sized units in new developments that could only be sold to
buyers of low and moderate incomes. Since then the Inclusionary program has evolved with a cap
on resale prices and on the income of would-be buyers. Developers can opt for cash-in-lieu which,
on average, range from $100-$150,000 per required affordable unit. (www.bouldercolorado.gov)
Mixed-Market Housing, Foxcroft (Salmon Arm, BC)
In 2009, the Province of British Columbia and the Canadian Mental Health Association (CHMA) partnered
to develop an affordable housing complex in Salmon Arm. The development is an apartment
condominium with 11 units for sale and 28 units for rent. Families with an income under $55,000 are
eligible to purchase the for sale units, which are being sold for $135,000. The for rent portion of the
development is reserved for low income individuals who are at risk of homelessness. Both complexes
are managed by the CHMA, who maintians resale control over the property.
Mixed Equity Co-op — Mountain Haven Coop (Canmore, Alberta)
The Mountain Haven Co-operative located in Canmore has developed an affordable housing project
based on a mixed equity co-operative model. On a non-profit basis, the Co-op has constructed 44
stacked townhouse units, including 12 Non-Equity and 32 Equity units.
• Prospective owners/co-operative members must have an annual household income that is within
the income cap of $66,500. Co-operative members must qualify for an individual mortgage in
order to purchase a home at a price range of $167,589 to $234,638.
• The mixed equity units consist of 40% continuing and 60% limited equity home ownership. Over
time, co-operative members can build equity in their home. The co-operative also aims to
maintain the 60%/40% distribution over time by repurchasing units as required to maintain that
balance.
• With respect to resale, the co-operative registers title covenants restricting occupancy and
resale. The restriction on resale price is limited to 110% of inflation measured by CPI.
(www.canmore.ca)
Not-for-profit Condo Model — Clarence Gate Project (Ottawa, Ontario)
Centretown Affordable Housing Development Corporation (CAHDCO) develops projects based on an
affordable home ownership model that ensures long term affordability by controlling the terms of
resale and leasing. An example of this program, the 30-unit Clarence Gate Project, was implemented in
2003.
• The key to the project’s affordability is modest design and low profit. One-third of the units were
sold at market prices to provide a capital subsidy to the affordable units.
• This not-for-profit condo model is a tenure arrangement designed to balance the need for the
sponsor (CAHDCO) to retain control of resale and ensure long term affordability, and the
homeowner’s need to protect his or her equity. Purchasers are required to sign an option that
gives CAHDCO the opportunity to buy back the unit. Owners receive their full purchase price plus
inflation (determined by CPI), plus a 3% charge for administration and resale.
• Owners are required to consult with CAHDCO in the event that the unit is to be rented. The
approval to lease cannot be unreasonably withheld; however, the duration of the lease may be no
more than one year, and the rent charged must meet the affordability criteria.
• Purchasers pay the financing costs, taxes, utilities and a monthly fee for a share of common
expenses. CAHDCO also negotiated with the City to ensure property taxes reflect the controlled
value of the home as opposed to the higher market price.
• Most of the parking spaces are rented out by the condominium to the unit owners. This revenue
helps to reduce common cost expenses. (www.cahdco.ca)
INNOVATIVE FINANCING/PARTNERSHIPS
Provincial Homeless Initiative
The Province has committed to creating more than 4,000 housing units under the Provincial
Homelessness Initiative. BC Housing leverages partnerships with local governments and non-profit
service providers and allocates funding to developments that integrate subsidized housing with support
services for people who are homeless or at risk of homelessness, people with mental illnesses and
physical disabilities, those with drug and alcohol addictions, aboriginal peoples, youth, and women
with children fleeing abusive relationships. To date the Province has acquired 25 Single Room
Occupancy hotels in Vancouver, Victoria and New Westminster, and is funding pre-development
costs for approximately 1,900 city-owned supportive housing units in Vancouver, Victoria, Kelowna,
Surrey, Abbotsford, Nanaimo, Maple Ridge, and Campbell River.
Reduced Downpayment and Monthly Subsidy (Medicine Hat, Alberta)
In Medicine Hat, the city’s largest local builder — Classic Construction Limited — developed an
innovative solution to create affordable homeownership opportunities. In partnership with the City of
Medicine Hat and CMHC, Classic Construction has facilitated the construction of approximately 442
units through assisting purchasers of new below-market housing units.
• Each purchaser receives an equity subsidy of approximately $5,000 that reduces the
downpayment and also receives a monthly subsidy for five or seven years to reduce mortgage
costs, condominium fees and utilities. Classic Construction contributes approximately $18,000 per
unit to cover the monthly subsidy. This subsidy is gradually decreased over the five or seven years,
allowing homeowners to adjust to making the monthly payments independently at the end of the
subsidy period.
• The Medicine Hat Community Housing Society provides homeowner training to potential buyers
and administers the monthly mortgage subsidy. CMHC provides mortgage loan insurance
flexibilities to homebuyers. The City of Medicine Hat helps to facilitate these projects through
relaxed zoning requirements for density, greenspace and site coverage.
• Classic Construction has now expanded this model of affordable home ownership to the Alberta
towns of High River and Canmore. (www.cmhc.ca)
Mortgage Financing Innovation (Vancouver, BC)
Vancity is an example of a lending institution that offers a number of financing options to provide
flexibility and opportunity for new home owners in the Vancouver real estate market.
• Mixer Mortgage — a new approach to traditional home buying designed for multiple households
who partner up to purchase a home. The new owners/partners can share the down payment,
mortgage payments and other ownership expenses. While each party’s name appears on the title
for the property, the owners have the flexibility to decide how the costs are divided among the
partners. (www.vancity.com)
Second Mortgage Financing — Options for Homes (Toronto, Ontario)
Launched in 1992, Options for Homes is a non-profit agency targeting lower income households
currently renting their homes, those who have limited opportunities to buy into the current market,
and those who are not familiar with the principles of home ownership. The model brings low and
moderate income people into the condominium market through lowering project costs and second
mortgage financing.
• The non-profit finds residential land and pre-sells the condo units. The buyers form a co-operative
housing corporation, which then hires Options as the development consultant to provide the
expertise to develop the project. This includes finding contractors, architects and lawyers,
providing marketing and arranging financing.
• The condos are sold at scheduled information sessions. The purchase “consultants” who assist
buyers are not real estate agents, but for the most part, owners from other Options’ projects
working part time for a small flat fee. Real estate agent fees are thereby eliminated.
• A second mortgage representing the difference between the building costs and market value is set
up. This second mortgage, however, lies dormant until the owner either sells the property or rents
it, thereby deterring speculators. For example, a condo unit valued at $110,000 on the market is
sold at the cost price of $100,000. The down payment is taken off the cost price ($100,000),
leaving the buyer with a mortgage of $94,500, $10,000 less than they would have had to pay at
full market price. As the condos appreciate, so does the second mortgage, an amount buyers must
repay if they rent or resell. This money then goes into an equity pool that is used to develop other
similar projects. (www.optionsforhomes.ca)
Habitat for Humanity (Continent-wide)
Habitat for Humanity Canada is a national non-profit organization that mobilizes volunteers and
community partners in building affordable housing and promoting home ownership as a means to
breaking the cycle of poverty. Habitat builds modest homes with simple yet effective designs, reduced
building costs through the use of skilled and unskilled volunteer teams, and building material donations
by private sector sponsors. Typically, the affordable housing units are sold at 10% below market prices,
much of which can be attributed to the donations of time and material.
Families are provided with a first mortgage based on construction costs at a zero interest rate, and a
second mortgage based on market value (difference between market value and first mortgage). Second
mortgages are forgiven after 12 years of residence.
Habitat has also developed a revolving fund in which the mortgage payments made by families are used
as a source of capital to build new homes for other families in need. The revolving fund is now used
primarily for multi-family dwellings due to increasing land costs across the country, while historically
single detached units were the norm. (www.habitat.ca)
APPENDIX F - AFFORDABLE HOUSING STRATEGY BACKGROUND REPORT
Pemberton Affordable Housing
Strategy
Background Report
Prepared for the Village of Pemberton | June 2009
Planning | Project Management | Applied Research
TABLE OF CONTENTS
Executive summary................................................................................. 1
Introduction.......................................................................................... 3
A Framework for Affordable Housing ........................................................... 4
Definitions......................................................................................... 4
The Affordable Housing Continuum............................................................ 4
Legislative Context in British Columbia....................................................... 5
The Policy and Planning Context in Pemberton.............................................. 5
Indicators of the Housing Market in Pemberton.............................................. 9
Demographic indicators.......................................................................... 9
Socio-economic Indicators..................................................................... 10
Housing Indicators.............................................................................. 10
Housing Affordability Indicators.............................................................. 14
Preliminary Issues and Considerations related to Housing Affordability............... 16
Housing Challenges............................................................................. 16
Target Population Groups ...................................................................... 18
Conclusion .......................................................................................... 19
Sources.............................................................................................. 20
Affordable Housing
Strategy - Background
Report
Prepared for the
June 2009
EXECUTIVE SUMMARY
Affordable housing considerations have been an important aspect of the Village of Pemberton
policies and plans for the past several years. Facing continued pressures on rental housing
and rising real estate prices, the Village initiated the development of an Affordable Housing
Strategy in the Spring of 2009 and commissioned CItySpaces Consulting to assist with this
work. This initiative is intended to create a policy and planning framework through which the
Village can effectively respond to its affordable housing issues.
This background report provides an outline of the policy, planning and regulatory framework
for affordable housing in Pemberton; an analysis of available data to produce indicators of
housing affordability; and an identification of preliminary issues and considerations based on
key-informant interviews. Key research findings are as follows:
Key Population Groups
Four population groups have been identified as being in housing need and in need of special
consideration through the Affordable Housing Strategy:
• Low income households seeking rental or ownership housing suited to their needs;
• Young families looking to move up the property ladder or into ground-oriented housing
suitable to family living;
• Seniors seeking housing to accommodate “aging in place”; and
• Seasonal workers looking primarily for secure and affordable short-term housing.
Key Housing Indicators
• Pemberton is one of the fastest growing communities in BC, with a population that has
roughly tripled since 1996. Many of the newcomers are young families and individuals
working in Whistler, resulting in a younger population overall compared to the rest of
the province, along with high rates of labour force participation.
• Pemberton’s housing stock has tripled since 1996, with 70% of building starts in multifamily units and the remainder in single detached units. New construction activity is
reported to have slowed down somewhat in the past two years.
• In Pemberton, low cost market housing is limited to secondary suites in detached
houses. There are no purpose-built rental apartment buildings in the Village. In terms of
non-market housing, the Lions Villa seniors housing is the only project in the Village. A
small number of households receive rental assistance funds through the BC Rental
Assistance program for families and SAFER1 program for seniors.
• Between 2003 and 2008, single detached home prices increased 20% reaching a peak
median price of $530,000 in 2008. During the same five year period, townhouse prices
increased 18% reaching a peak median price of $320,000 in 2008 and, notably,
apartment prices increased 70% reaching a peak median price of $270,000 in 2008.
Affordable Housing
Report
Prepared for the
June 2009
• According to the classified listings from 2008-2009, rents in Pemberton range from as
low as $551 for a shared unit to $1,891 for a house or townhouse that has three
1 The Shelter Aid for Elderly Renters (SAFER) program provides monthly cash payments to subsidize rents
for BC seniors (age 60 or over) with low to moderate incomes and who are renting their homes.
Page 1
bedrooms or more. A typical 1-bedroom unit rents for $922 and a 2-bedroom unit rents
for $1,341. Between 2002 and 2008, rents increased by as much as 20%, according to the
rental classified listings.
• For the typical Pemberton household, rental units remain relatively affordable. Married
couples earning the median household income of $68,500 could afford $1,700 for rent,
single parent families could afford up to $1,050 per month and one person households
could afford up to $900 for rent. Rental housing may, however, be difficult to find.
• With regard to purchasing a home, a married couple family earning the median-income
could afford a home priced at approximately $297,000 with a 10% down payment. Single
parent families could afford a home priced at approximately $156,000 and one person
households a unit priced at $124,000. Overall, options for home ownership are limited
for all households. First-time home buyers are generally limited to condominium
apartments and those looking to move up the property ladder may not be able to do so
because of limited choice in the market.
Key Factors and Considerations
• Housing issues span geopolitical boundaries and housing in Pemberton need to be
considered in a regional context encompassing SLRD Area C and Mount Currie.
• Recent studies have focused on the provision of seniors housing in the community in
response to the desire to have seniors “age in place”. BC Housing has recently
committed to constructing an additional eighteen new modular units for seniors and
persons with disabilities as part of the Provincial Seniors’ Rental Housing Initiative.
• A number of challenges directly affecting housing in Pemberton have been reported:
• Demand for recreational and retirement housing by non-residents and Whistler
commuters has resulted in house prices that exceed local affordability levels;
• Limited supply of rental housing has resulted in low vacancies and concerns around
quality and safety of the stock of secondary suites in private market homes;
• Pemberton is home to a mix of multi-unit and single detached dwellings. With a large
share of the population in the young family stage, many residents have reported
there is limited choice within the ground-oriented dwelling stock;
Affordable Housing
Report
• Physical constraints to development such as building on the floodplain, land within
the Agricultural Land Reserve (ALR), topographic conditions, and lack of servicing are
reported to have resulted in complex approval processes and above average costs;
• Housing in Pemberton is closely tied to the housing situation in Whistler. As employee
housing projects in Whistler (Rainbow, Athletes Village) reach completion, a decline
in demand is anticipated to occur in Pemberton. Conversely, improved accessibility
due to Sea-to-Sky highway improvements between Whistler and the lower mainland
could positively impact housing demand in the Pemberton area and beyond; and
June 2009
• The opportunity to benefit from short-term rentals to tourists during the 2010
Olympic and Paralympic Games is expected to displace long-term renters and exert
pressure on the rental market during the winter months preceding and following the
Games.
Prepared for the
Page 2
INTRODUCTION
Pemberton has experienced significant growth and change in recent years. The community’s
natural setting, abundance of outdoor amenities and recreation opportunities, proximity to
Whistler, friendly, small-town character and lower cost housing, in comparison, have
attracted many people, employees and young families to Pemberton. In response to new
demand for housing, several multi-family housing and mixed use projects have been
constructed close to the Village Centre, with development beginning to emerge more slowly
in other areas, such as the Benchlands.
In recent years, however, land values have escalated, presenting challenges for local
residents in terms of housing affordability and attainability.
“Over the long-term, real estate values in the Village of Pemberton have been
consistently rising, and affordable housing has become a prevalent issue for the
municipality”2 .
In order to address both the current and future housing needs of the community, the Village
of Pemberton has embarked on the development of an Affordable Housing Strategy. This
background report provides a summary of the contextual information, including statistical
and qualitative research findings,to describe Pemberton’s current housing situation and
appropriately guide the development of a strategy. More specifically, this report provides:
• An outline of the policy, planning and regulatory framework for affordable housing in
Pemberton;
• An analysis of current demographic and development related data to produce key
indicators of housing affordability in Pemberton; and
• An identification of preliminary issues and considerations related to housing
affordability based on key-informant interviews.
It is recognized that, although this research is being conducted at the request of the Village
of Pemberton, housing issues are both local and regional in nature, crossing the jurisdictional
boundaries of the Village of Pemberton, the Squamish-Lillooet Regional District and Lil’Wat
First Nation. As such, the research focuses not only on the Village of Pemberton but on the
Pemberton area in general.
Affordable Housing
Report
Prepared for the
June 2009
2
Benchlands Neighbourhood Concept Plan. 2007.
Page 3
A FRAMEWORK FOR AFFORDABLE HOUSING
DEFINITIONS
The definition of affordable housing remains a moving target. According to CMHC, affordable
housing is housing that costs no more than 30% of a household’s gross income. In addition to
affordability, issues related to suitability and quality of the housing stock are identified as
being integral to planning for affordable housing. For Pemberton, the following affordable
housing vision and definition of housing affordability have emerged:
Vision: Our affordable strategy seeks to create a mix of rental and ownership housing
options that meet the needs of Pemberton residents.
Definition: Housing affordability refers to a household’s ability to pay for housing at a
reasonable percentage of household income. In Canada, this is typically 30% of gross income.
THE AFFORDABLE HOUSING CONTINUUM
The affordable housing continuum, illustrated in Figure 1, represents the spectrum of
affordable housing types. At the far left of the continuum, is emergency shelter for people
who are homeless or at risk of homelessness. At the far right of the continuum, are affordable
rental and home ownership options for households with low to moderate incomes. The
continuum shows a shift from non-market housing to housing that is government subsidized,
to affordable housing that is provided in the private market. As one moves along the
continuum, reliance upon government support decreases and independence increases.
Figure 1: Affordable Housing Continuum
AFFORDABLE HOUSING CONTINUUM
EMERGENCY SHELTERS SOCIAL HOUSING & RENT BELOW MARKET
Subsidized rental housing (seniors, families)
Price restricted housing (rental, owned)
TRANSITIONAL & SUPPORTIVE Special needs housing (recovery, mental health, LOW‐
COST MARKET
Affordable Housing
Report
Small lots, small units, secondary suites
Prepared for the
NON‐MARKET
MARKET
Source: CitySpaces Consulting Ltd. 2009
Lower cost market housing in Pemberton is limited to rental housing in the form of secondary
suites. Social housing is limited to the Pemberton Lions Villa, an eight-unit complex for
seniors. However, the province has recently committed funding for an 18-unit seniors complex
with funding from BC Housing as part of the new Seniors’ Rental Housing Initiative. Ten
households in Pemberton receive rental supplements through the Rental Assistance Program
for families (7 households) and the SAFER program for seniors (3 households). 3
The Shelter Aid for Elderly Renters (SAFER) program provides monthly cash payments to subsidize rents
for BC seniors (age 60 or over) with low to moderate incomes and who are renting their homes.
June 2009
3
Page 4
LEGISLATIVE CONTEXT IN BRITISH COLUMBIA
Since the federal government withdrew funding for new social and cooperative housing in
1992, provincial and municipal governments have become more involved in identifying and
addressing housing needs. In British Columbia, BC Housing has played an increasingly
important role in providing housing to vulnerable populations including low-income
individuals and families, homeless and populations at-risk of homelessness.
A municipality’s powers in relation to housing are derived from the Community Charter and
the Local Government Act (LGA). The Charter (2004) gives BC municipalities the authority to
legislate in a number of broadly-stated spheres of jurisdiction and provides:
• more flexibility to identify and provide service that Council considers necessary or
desirable, such as housing;
• clear authority to regulate, prohibit and impose requirements;
• ability to waive or reduce fees when land or improvements are held by a charitable or
non-profit corporation;
• authority to establish a tax exemption program for an area designated as a revitalization
area.
In 1993, the BC Government amended the Municipal Act (now, the Local Government Act) to
require municipalities to include policies related to affordable, rental and special needs
housing in their Official Community Plans. The LGA contains a number of additional provisions
related to housing:
• Provides flexibility to allow higher density (bonus zoning ) in return for the provision of
community amenities, including affordable and special needs housing.
• Enables a local government to enter into a housing agreement with a landowner
regarding the occupancy of the housing units in terms of tenure, classes of person,
administration of the units, rents and lease, sale or share price. The housing agreement
is registered on title and is binding on future owners.
• Provides authority to waive or reduce a Development Cost Charge (DCC) for not-forprofit rental housing.
• Allows for variation of DCCs according to different sizes or different numbers of lots or
units in a development.
• Stipulates that the BC Building Code applies to all municipalities, of which Part 9.36
reflects on Secondary Suites.
THE POLICY AND PLANNING CONTEXT IN PEMBERTON
Affordable Housing
Report
Prepared for the
June 2009
There are a number of policies, plans and regulations which comprise the current framework
for housing development in Pemberton. In particular, affordable housing is flagged as a key
planning issue in several documents. Key documents are noted here:
Squamish-Lillooet Regional District Regional Growth Strategy (Draft 2008)
The Squamish Lillooet Regional District (SLRD) supports a range of quality affordable housing
and housing types, targeting households of low and moderate income earning less than 80% of
Page 5
the median income. It includes policy statements regarding stakeholder collaboration,
advocating for a range of housing types and housing affordability, and promoting consistency
of affordable housing policies across the region.
Strategic directions include:
• Establish a regional affordable housing strategy encouraging regional housing trust
funds, partnerships with non-profit organizations and exchange of experiences vis a vis
an affordable housing committee
• Adopt policies and regulations to support live-work, mixed-use neighbourhoods, and
residential intensification (secondary suites, flex-housing, infill and small lot
development)
• Encourage affordable housing self-help initiatives (e.g. community housing land trusts)
• Adopt financial tools (e.g. cash-in-lieu of social housing contributions, waiving DCCs,
property tax exemptions, and land grants)
• Adopt price, resale, rent geared-to-income controls and other options to increase supply
of affordable housing and create housing that is perpetually affordable
• Encourage cooperation with community services groups and developers to supply lowcost housing options for seniors
The Official Community Plan (OCP)
Pemberton’s Official Community Plan (OCP) adopted in 1999 establishes a number of policies
and priorities in terms of housing:
• Encourage developers of Crown benchlands to include a range of multi-family residential
housing opportunities; target of 25% multi-family housing
• Consider use of Comprehensive Development (CD) zones to accommodate multi-family
housing; support increased densities for affordable housing with tangible community
benefit
Affordable Housing
Report
• Encourage housing for seniors and seniors housing located close to community amenities
or Village centre
• Encourage residential uses within mixed-use buildings downtown
• Encourage group home facilities in residential areas
Prepared for the
• Require careful review of development proposals for land within potential natural
hazard area.
Squamish-Lillooet Regional District Area C Official Community Plan (Draft)
June 2009
The Village of Pemberton is adjacent to the Squamish-Lillooet Regional District (SLRD)
Area C. While not within the Village of Pemberton’s jurisdiction, the SLRD Area C OCP
warrants consideration. Land use planning policies affecting Area C have implications
for growth and development in the Village of Pemberton.
• The Area C OCP speaks to supporting principles of smart growth including: directing
urban development towards existing communities; building compact, mixed-use
Page 6
neighbourhoods; creating walkable communities; promoting a variety of low impact
transportation options; and advocating for a range of affordable housing options.
• Policies affecting rural residential areas allow for secondary suites and cluster housing
development.
• Policies specific to affordable housing include: distributing affordable housing
throughout the plan area; maintaining existing mobile home parks and considering new
mobile home parks subject to conditions; compensation for net loss of affordable
housing units as a result of rezoning through relocation allowance or assistance,
replacement of affordable housing on-site, or other approaches; consideration for 10-15
% inclusionary zoning; financial contributions to an affordable housing fund; and density
bonuses for the provision of affordable housing.
• The SLRD Area C OCP also makes notable reference to the possible future development
of 400 ha of land south of Mosquito Lake with the potential for densities equivalent to
the Pemberton Benchlands area (5.25 units per hectare) which could be allocated in
several ways to include a broad range of housing types from some acreage type lots to
apartments4.
Strategic Plans (2005-2009)
Pemberton Council has addressed housing issues through its annual strategic planning
processes:
• Supporting affordable housing is identified as one action to facilitate social
sustainability. This action involves concentrating development into nodes which enhance
walkability and providing a variety of housing options to ensure diversity.
• Developing an affordable housing policy “to ensure a diverse range of options, provide
developer incentives to value resident affordability, and explore the role of secondary
suites, modular homes, townhomes and hostel.”
• Exploring the feasibility of developing a secondary suites policy regarding new and
existing suites, and an affordable housing strategy “that addresses the community’s
needs and challenges (seniors and staff housing)”.
• Supporting a multi-generational community and the ability for residents to “age in
place” working in partnership with the Seniors Society, Lions Club and Mount Currie
Band in addition to continuing “to support and facilitate the process for development of
the Lions land into seniors housing”.
Affordable Housing
Report
Prepared for the
Benchlands Neighbourhood Concept Plan
The 2007 Benchlands Neighbourhood Concept Plan (NCP) establishes a land use and servicing
framework for the future development of the hillside adjacent to Pemberton’s village centre.
The NCP proposes a mixed use, hillside residential neighbourhood consisting of groundoriented single family and multi-family housing units. Phase 1 includes 503 dwelling units
including 189 secondary suites within large and medium single family homes. The OCP
requires 25% of new housing in the Benchlands to be multi-family housing.
4
Squamish-Lillooet Regional District Area C Official Community Plan. Draft, 2008.
June 2009
Page 7
The plan is based on the assumption that Pemberton’s demographic profile points to a need
for affordable and flexible housing for young families that they will be able to grow in to over
time. The plan also assumes that secondary suites will be desirable as mortgage helpers and
to help provide lower cost rental housing in the community.
“Surveyed public opinion during the public consultation process has stated that
affordable single family housing options are desirable, and that secondary suites
are a necessary component of future growth in the Village. The Benchlands NCP
aims to meet this demand by designating a broad range of single family lot
sizes, multi-family townhomes, and the provision for accommodating secondary
suites in larger single family homes”5.
Affordable Housing
Report
Prepared for the
June 2009
5
Benchlands Neighbourhood Concept Plan. 2007.
Page 8
INDICATORS OF THE HOUSING MARKET IN PEMBERTON
A number of demographic,socio-economic, housing, and income-related data help to inform
our understanding of Pemberton’s housing market.
DEMOGRAPHIC INDICATORS
Population Profile
One of the fastest growing municipalities in BC, the Village of Pemberton grew at a rate of 6%
per year between 2001 and 2006 compared to a provincial growth rate of 1% per year.
Compared to the previous census period, however, Pemberton experienced a slowdown in its
pace of growth — 34% between 2001 and 2006 compared to 94% between 1996 and 2001.
Figure 1: Population by Age, Pemberton and BC, 2006
51%
Pemberton
50%
BC
40%
30%
20%
28%
27%
19%
17%
17%
15%
13%
10%
10%
3%
Affordable Housing
0%
0-14
15-24
25-44
45-64
65+
Source: Statistics Canada, Census
• Generally, Pemberton has a younger population than the rest of the province. The
median age in 2006 was 33 years of age compared to 40 years of age in BC.
• In 2006, more than half the population (51%) was between 25 and 44 years of age,
compared to only 27% of the provincial population. Conversely, only 17% of Pemberton
residents were between the ages of 45 and 64, and no more than 3% were seniors over
the age of 65. While the share of the population over 45 has risen during the last census
period, they make up a smaller share of the population in Pemberton (20%) than the rest
of BC (43%). This distribution illustrates the extent that Pemberton’s population consists
of working families with children. (Figure 1)
Report
Prepared for the
June 2009
• Between 1996 and 2001, there was a large increase among the 25 to 44 year old age
group (118%) as well as children under 14 years of age (84%). In the more recent census
period, 2001 to 2006, the most substantial changes were occuring among the older 45+
age groups.
Page 9
SOCIO-ECONOMIC INDICATORS
Pemberton’s economy, although historically rooted in agriculture and forestry, is today
strongly tied to tourism and Whistler Resort, in particular. Approximately 21% of Whistler
employees (2200) reside outside in Whistler, primarily in Squamish or Pemberton6. Although
Whistler has a well-established employee housing program, many people choose Pemberton as
a lower cost alternative for both renting and owning a home. Whistler employees may also
seek home ownership in Pemberton due to the absence of housing restrictions7 .
Labour Force
The 2006 Census indicates a high level of labour force participation (the percentage of adult
residents 15 years and older who are either working or actively seeking work), 89% in
Pemberton compared to 66% BC-wide. This is not surprising, given the large share of the
population of working age.
• Over a quarter of the labour force is employed in sales and service sector jobs (26%),
while 21% work in management and 18.5% work in trades, transport and equipment
operation (primarily construction jobs).
• Between 1996 and 2006, unemployment rates fell from 9.6% in 1996 to 4.8% in 2001, to
3.5% in 2006. Comparitively, the unemployment rate for BC in 2006 was 6.0%.
HOUSING INDICATORS
Housing Stock
In 2009, Pemberton was estimated to have over 1,000 occupied dwelling units, triple the
housing stock in 1996. The vast majority of housing was ground oriented (87%) including single
detached, duplexes, townhouses and mobile homes. The remaining 13% were in apartment
condominiums. As part of the ground oriented stock, 5% of the dwelling units were in mobile
homes and 9% were estimated to include secondary suites8.
Secondary suites (accessory suites) are permitted in new and existing single detached homes
on residential and ALR designated land. Suites are not currently permitted on lots smaller
than 1.2 hectares or beneath the Floodplain Control Level (FCL). However, many suites have
been constructed illegally in basements upon the floodplain by owners taking advantage of
existing space.
Although many are illegal, suites are recognized as an important source of rental housing
within Pemberton. The Village of Pemberton has gone through a process of registering suites
in order to charge homeowners the appropriate utility charges.
Affordable Housing
Report
Prepared for the
June 2009
6
Whistler Housing Authority Employer Housing Needs Assessment. 2008.
7 Whistler Housing Authority (WHA) administers a pool of affordable ownership and rental housing. Some WHA units
are occupancy restricted, and are required to be occupied by either a Whistler employee or retiree. Other units are
both resale and occupancy restricted, and must be occupied by a Whistler employee or retiree while the resale price
of the unit is controlled by the WHA.
8
Village of Pemberton building permit statistics.
Page 10
Age of Housing Stock
Statistics Canada data on the period of construction of occupied private dwellings illustrates
that Pemberton is a relatively young community. Of all dwelling units in the Village of
Pemberton, roughly one third were built before 1995, one third were built between 1996 and
2000, and the remaining third were constructed since 2001.
Figure 2: Period of Construction
2001-2009
32%
Pre 1995
34%
1996-2000
34%
Source: Statistics Canada, Census - Updated with Building Permit Statistics
Development Activity
Annual building permits suggest an increase in construction activity in the Village of
Pemberton between 2001 and 2004. During this time, 74% of building permits were for multiunit housing and 26% were for new single detached or mobile home construction.
Figure 3: Residential Building Permits, New Construction (1993-2008)
Affordable Housing
120
Report
100
80
96
Prepared for the
68
60
44
66
40
20
43
48
17
7
11
12
0
28
12
31
20
June 2009
37
25
15
-
16
25
4
11
9
4
7
1993 1994 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008
Single Detached Incl. Mobile Homes
Mullti-unit Homes
Source: Village of Pemberton Building Permit Statistics
Page 11
Since 2004, real estate and development activity has experienced a slowdown, corresponding
with trends in the Whistler market. Nonetheless, there are a number of major residential
development projects to note:
• Pemberton Benchlands — a development of 600 to 700 units of small lot, single detached
homes and townhouses included in the Benchlands Neighbourhood Concept Plan. Phasing
for this project is expected to be over a 15 year period.
• The Plateau — mixed single detached and multifamily development and a number of
vacant lots that have yet to come on the market.
• BCR Properties/Signal Hill Homes — rezoning application in process for 281 units during
the first phase and approximately 170 units in the second phase.
Additionally, a number of mixed-use projects are in the development pipeline including:
• Arbutus Walk - commercial/multi-family residential development including 5 live-work
units.
• Harrow and Portage - commercial and multi-family residential development including 43
housing units.
• Portage Station - The Landings - Commercial/live-work/multi-family development
including 7 live-work units and 37 housing units.
• Gateway 1 - Commercial/Multi-family/hotel development including 27 units.
• Gateway 2 - Commercial/Multi-family development.
• Frontier Street - Commercial/Multi-family development including 41 units.
• Expedition Station - Commercial Live-work/Residential including 17 units.
Overall, 1,203 to 1,303 housing units are anticipated through projects in the development
pipeline9. Notably, a 2007 study by Stantec estimated that an additional 3,071 dwellings
would be required in the Pemberton-Mt.Currie area to accommodate anticipated population
growth over a 20-year period 10.
Affordable Housing
Report
Real Estate Prices (1998 - 2008)
Available real estate data from 1998 to 2008, indicate that real estate prices increased
steadily over the ten-year period. Notably, there has been a significant increase in residential
real estate prices over the past four to eight years. Figure 4 shows changes in median real
estate prices based on resale house prices in the Whistler Listing System. These figures do not
include private sales (by owner) or pre-sales (new projects) typically listed with a real estate
company.
Prepared for the
June 2009
Snapshot 2009: A Community Status report to inform Pemberton’s future land use and growth policies. Village of
Pemberton Development Services Department, May 2009.
9
Pemberton and Area Sub-regional Land Use Planning Study. Prepared for the Squamish-Lillooet Regional District,
Village of Pemberton and Lil’Wat Nation. Stantec Consulting Ltd. 2007.
10
Page 12
Figure 4: Median Real Estate Prices (1998-2008)
$529,500
Detached
$500,000
Townhouse
$400,000
$317,750
$300,000
Apartment
$270,000
$241,250
$200,000 $175,000
$100,000
$89,900
$0
1998
1999
2000
2001
2002
2003
2004
2005
2006
2007
2008
Source: Whistler Real Estate Company
Between 2003 and 2008, single detached home prices increased 20% reaching a peak median
price of $530,000 in 2008. During the same five year period, townhouse prices increased 18%
reaching a peak median price of $320,000 in 2008 and, notably, apartment prices increased
70% reaching a peak median price of $270,000 in 2008.
Real Estate Sales (1998 - 2008)
Since 1998, the number of real estate sales in the Whistler Listing System has gradually
increased each year, reaching a peak in resale transactions in 2003 with 224 sales. Sales
dropped between 2004 and 2006, with roughly 85 transactions per year, but have since
recovered to an average of 153 sales per year in 2007 and 2008. (Figure 5).
Affordable Housing
Figure 5: Real Estate Sales (1998-2008)
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9
200
72
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150
41
15
37
100
2
2
50
1
19
0
4
8
1998
35
27
1999
2000
Single Detached
51
33
19
19
49
67
77
2002
Townhouse
Source: Whistler Real Estate Company
17
26
26
26
34
38
39
2004
2005
2006
74
52
2001
19
10
12
2003
Apartment
34
68
66
2007
2008
June 2009
Mobile Homes
Page 13
While the resale market is split between single detached homes and condominiums (both
apartments and townhouse units), the majority of new projects that have come on the
market in the past few years have been multi-family attached dwellings.
Tenure
Similar to many BC communities, Pemberton is primarily a community of home owners — 65%
of households currently own their home. However, the proportion of home owners in the
community has been declining. Between 1996 and 2006, the proportion of owned dwellings
has declined from 73% to 65%. During the same period, the share of households who rent
their residence has increased from 28% to 35%.
Rental Rates
As rental market data for Pemberton is not compiled through Canada Mortgage and Housing
Corporation’s rental survey, rental listings within The Pique classified advertisements were
used to determine estimated average rents for typical rental unit types. The figures in Table 1
do not account for units rented by word-of-mouth or alternate advertisements.
Table 1: Estimated Average Rents (2002-2009)
Average
Rent $
2002
2003
2004
2005
2006
2007
2008
2009
Shared
$437
$458
$467
$475
$428
$481
$523
$551
1 Bedroom
$702
$707
$689
$691
$634
$600
$811
$922
2 Bedroom
$944
$955
$952
$856
$838
$848
$1,126
$1,341
3+ Bedroom
$1,591
$1,271
$1,141
$1,469
$1,891
$1,682
Units Listed
99
272
132
85
76
53
$1,563 $1,467
111
189
Source: The Pique Classifieds - Rental Listings in the February and September issues, 2002-2009
Affordable Housing
• According to the classified listings from 2008-2009, rents in Pemberton range from as
low as $551 for a shared unit to $1,891 for a house or townhouse that has three
bedrooms or more. A typical 1-bedroom unit rents for $922 and a 2-bedroom unit rents
for $1,341. Between 2002 and 2008, rents increased by as much as 20%, according to the
rental classified listings.
• The rental market in Pemberton has been closely connected to Whistler’s tourism
economy and has historically offered Whistler employees a relatively more affordable
alternative. As such, the decline in tourists to Whistler in 2005 and 2006 would have
resulted in an increase in Pemberton’s rental supply (and rental price decrease).
Similarly, the spike in Pemberton rental prices seen in 2008 and 2009 is likely related to
pre-Olympic construction activity in Whistler.
Report
Prepared for the
June 2009
HOUSING AFFORDABILITY INDICATORS
Income to Housing Costs
In order to determine whether or not housing is affordable, housing costs are compared to
household income. Affordable housing is typically considered to be housing that costs less
Page 14
than 30% of a household’s gross income. However, 32% of a household’s gross income is used
by lending institutions, corresponding to gross debt service ratio, for the purposes of
approving mortgages.
Using estimated household income figures for 2008, Table 2 presents the maximum purchase
price and maximum rents for different types of households earning the median household
income in Pemberton.
Table 2: Estimated Maximum Housing Costs (2008)
Household/Family Type
Median
Income
Available
Income for Rent
(30%)
Maximum
Purchase Price
(5% down)
Maximum
Purchase Price
(10% down)
Married Couple Families
$68,500
$1,710
$281,000
$297,000
Single Parent Families
$42,250
$1,060
$148,000
$156,000
One person household
$36,300
$910
$118,000
$124,000
Source: CitySpaces Calculations based on 2006 Federal Census and adjusted to 2008 using
Provincial wage earnings. Mortgage calculations determined using ING-posted rates for five-year
fixed term at 4.49% (June 2009)25 year amortization and $350 monthly costs for property taxes,
maintenance fees and utilities.
• With regard to rental housing, according to the calculations in Table 2, married couples
earning the median household income of $68,500 could afford approximately $1,700 for
rent, single parent families could afford $1,050 per month and one person households
could afford up to $900 for rent. This assumes households are spending a maximum of
30% of their income on rent.
• With regard to purchasing a home, according to the calculations in Table 2, a married
couple family earning the median-income would be able to afford a home priced at
approximately $297,000 with a 10% down payment. Single parent families would be able
to afford a home priced at approximately $156,000 and one person households a home
priced at $124,000.
• For the typical Pemberton household, rental units remain relatively affordable (Table 1).
However, key informant interviews indicate that affordable rental housing can be
difficult to find.
• On the home ownership side, many households would not be able to purchase a home in
Pemberton without surpassing the affordability threshold established by lending
institutions. Single detached houses and many townhouses would be unattainable
without a more substantial down payment or other special circumstances and starter
homes for first time buyers would likely be limited to condominium apartments.
Affordable Housing
Report
Prepared for the
June 2009
• Apartment units valued at $270,000, based on 2008 resale prices, are most “attainable”
for median income earning married couple families. Some married couple families could
afford a typical townhouse unit with a larger down payment or potentially a lowerpriced townhouse unit with 10% down payment. Singles and single parent families
appear to be priced out of the homeownership market in Pemberton.
Page 15
PRELIMINARY ISSUES AND CONSIDERATIONS RELATED TO HOUSING
AFFORDABILITY
HOUSING CHALLENGES
Discussions with Village of Pemberton and SLRD staff, members of Village of Pemberton
Council, local developers and employers, and residents suggest that there are challenges in
Pemberton related to both rental and ownership housing.
Cost of housing
The cost of housing has repeatedly been cited as the greatest housing challenge in
Pemberton. The ability to pay for housing, as already described, determines whether or not
housing is affordable. From the census data, we know that a large proportion of Pemberton
residents are employed in service sector jobs and, although median incomes do make rental
housing affordable, there is far less choice in the home ownership market.
Rental Housing Availability
Key informants noted that it can be difficult to find rental housing in Pemberton, especially
during the ski season. This applies to both workers looking for short term seasonal
accommodation and workers in need of longer term housing arrangements. There is
competition for space primarily with workers who are unable to find accommodation in
Whistler. Some renters have been forced to leave Pemberton because housing was
unavailable. There is also some concern that the 2010 Olympic Games will negatively affect
the availability of rental housing to longer-term workers as owners convert their long-term
rentals to short-term accommodation from now until after the Games have concluded in
Spring 2010.
Ownership Housing Options
Key informants noted that it is difficult to get into the ownership housing market in
Pemberton and, also, that there are a lack of housing options for people seeking to move up
the property ladder. Reasons cited included the high cost, limited supply and poor quality of
housing.
A number of key informants suggested that it would be very difficult to obtain groundoriented housing, particularly single-detached housing, with typical household incomes. Young
families, in particular, wanting to move from multi-family housing into ground-oriented
housing with private yards find that this type of housing product is difficult to obtain while
maintaining affordability. Similarly, those seeking housing options to accommodate aging in
place noted that such options are limited. Some suggested a need for a good variety of unit
types and sizes to meet the varying needs of different household types.
Physical Constraints
Affordable Housing
Report
Prepared for the
June 2009
There are numerous physical constraints which present limitations to development in
Pemberton. These include the prevalence of land within the floodplain, the agricultural land
reserve, steep slopes, slope aspect (sun/shade), and soil and bedrock conditions. The limited
supply of appropriately zoned and/or serviced land was also a common challenge cited by key
informants.
Page 16
Development Costs
There are a number of costs associated with development in Pemberton -- these include costs
typically involved with development (i.e. land purchase, servicing, and regulatory review)
and also costs that are uniquely associated with development in Pemberton. These include
primarily costs associated with preparing sites for construction. There is an additional
expense with construction upon the floodplain where sites on the floodplain need to be filled
or built to the flood construction level. Development in an area with significant bedrock, such
as the Benchlands, may require rock blasting, which can also be very costly. Developers spoke
to the high cost of land, high cost of off-site servicing, need for geotechnical studies,
stringent landscaping and lighting requirements, community amenity contributions and a
cumbersome development review process as being factors contributing to high development
costs and the final cost of housing.
Economic Challenges
A number of key informants referenced Pemberton’s role as a bedroom community for
Whistler as being a challenge both in terms of competing for housing with Whistler workers
and also because Pemberton lacks its own significant economic generator or employment
base. There was also the suggestion that employee hiring and retention for professional jobs
can be difficult in Pemberton due to the cost of housing. Conversely, a lack of good paying
local jobs and job security (permanent jobs with benefits) were also noted as challenges to
finding stable and affordable housing in Pemberton.
Other Considerations
The research has brought to light a number of other considerations that are relevant to the
development of an Affordable Housing Strategy for Pemberton.
• Although land values have risen in Pemberton, those values remain lower than land
values in Whistler. As such, Pemberton continues to be seen as an attractive and more
affordable alternative to Whistler.
Affordable Housing
• Pemberton’s housing market is closely interconnected with that of the markets in
Squamish and Whistler. While higher real estate prices and rents in Whistler have
increased demand for more accessible alternatives in Pemberton, increasing
development and product choice in Squamish have also increased the appeal of that
community to residents in the region, potentially slowing down the growth in
Pemberton.
• Sea-to-Sky highway improvements increase accessibility to communities within the
corridor, shortening the time it takes to travel to and from the lower mainland. This may
result in increasing pressure on Pemberton as a destination for second-home owners and
may also stimulate economic development within Pemberton.
• The lack of public transportation in the Pemberton Valley has been identified as a
challenge related to housing. People come to Pemberton to access local services and
entertainment but may be unable to return home, and rendered “temporarily
homeless”, due to limited transportation options.
Report
Prepared for the
June 2009
• Discussions with Sea-to-Sky Community Services suggests that the Sea-to-Sky Corridor is
home to a significant and growing homeless population. The number of homeless who
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may be living in the Pemberton area is unknown. However, anecdotally, there are people
living in the area in tents or other substandard shelter.
• Although not directly a housing challenge, a number of key informants referred to a lack
of community cohesion resulting from Pemberton being comprised of a mixture of long
term residents and a transient population.
• In 2008, the Pemberton Lions Activity Society contracted a study, with funding through
BC Housing, to determine seniors’ housing needs and create a seniors housing vision for
Pemberton. Through a seniors housing survey and community forums, the study
confirmed the demand for seniors housing in Pemberton. Roughly half the survey
respondents (51) expressed a need for independent living units and the other half (53)
expressed a need for assisted living units, both now and in the future. Some of the
desired characteristics of this housing include housing on one level, shared indoor and
outdoor amenities, one or two bedroom units, and housing that is close to transit and
services.
TARGET POPULATION GROUPS
An analysis of relevant data sources and information collected through key-informant
interviews indicates that there are four key demographic groups that merit specific attention
through the development of an Affordable Housing Strategy.
Low income households
Pemberton’s low income households are a population group challenged with being able to find
secure, long-term housing that is both affordable and appropriate to their needs. The
research reflects a common perception that rental housing is often difficult to obtain and
that rental housing prices are high in relation to household incomes. Households within this
demographic primarily include those on fixed incomes or those working in the service sector
of the economy.
Affordable Housing
Young Families
Young families seeking to move up the property ladder are finding that their options are
limited. Growing families, for instance, seeking to move from multi-family housing to more
ground-oriented and detached housing forms with secure, private yards are challenged to find
suitable homes which meet their lifestyle needs yet fit within their budgets.
Report
Prepared for the
Seniors
While seniors remain a relatively small proportion of the population, the limited stock of
seniors’ housing has been reported to be one of the prominent concerns of Pemberton
residents. There is a growing trend toward planning for seniors to “age in place”. There have
been a number of discussions in the community regarding how to accommodate an aging
seniors’ population and the importance of providing a range of market and non-market
housing options. Some of Pemberton’s seniors have assets and reasonable incomes, but are
challenged by the lack of options that allow them to downsize to one-level ground-oriented
living.
June 2009
Page 18
Seasonal Workers
Seasonal workers are another group that are challenged with finding secure, affordable
housing. Seasonal workers are a vital component of the regional economy -- contributing to
the tourism economy based primarily in Whistler and also, to a lesser extent, farming
activities in the Pemberton Valley.
Others
An often overlooked group in smaller communities is the homeless. There is no empirical data
to substantiate the number of homeless people living in the Pemberton area. However, we
know anecdotally that there are people living in tents or other types of substandard shelter in
the Pemberton area. It has also been suggested that there is frequently a “temporary
homeless” population — where individuals arriving in the community can’t get home due to
the lack of regional transit service or because short-stay housing isn’t available.
CONCLUSION
A review of relevant plans, policies and documents and discussions with key informants
confirms that Pemberton faces a number of housing challenges that warrant further
consideration. These include: the cost of both rental and ownership housing; limited rental
housing availability; limited choice in home ownership options; and physical constraints to
development including the floodplain, agriculturally zoned land, topographic conditions, and
lack of servicing. Further to this, it is evident that Pemberton is tied strongly to the Whistler
economy. Its role as a bedroom community for Whistler presents a challenge in terms of
competition in the market contributing to the cost of both rental and ownership housing.
An examination of both rental rates and home prices, in relation to area incomes, indicates
that housing affordability is a concern across the population. For the typical Pemberton
household, rental rates appear to be relatively affordable but the research suggests that
adequate and affordable rental accommodation is difficult to obtain. On the ownership side,
married couple families have some choice in the market, while singles and single person
households are virtually priced out. First-time home buyers are generally limited to
condominium apartments and townhouses, while those looking to move up the property
ladder may not be able to do so because of limited choice in the market.
The Village of Pemberton has begun to examine housing affordability issues and taken
measures to address these issues through development -- primarily within the Benchlands
area (although uptake in the Benchlands has been slow). In addition, Pemberton has a
considerable number of secondary suites. Despite the fact that only some of the units have
been permitted (by building permit), secondary suites represent an important stock of
affordable rental housing within the community in addition to serving as mortgage helpers. A
limited amount of affordable seniors housing has been constructed to date, with eighteen
additional units coming on stream. Based on population projections and anticipated
development, a housing shortage is expected over the next 15 to 20 years.
An Affordable Housing Strategy is needed to address Pemberton’s immediate and long-term
housing challenges. Specific groups needing attention include: low income households seeking
rental or ownership housing; young families looking to move up the property ladder or into
ground-oriented housing; seniors wanting to “age in place”; and seasonal workers looking for
secure and affordable short-term housing.
Affordable Housing
Report
Prepared for the
June 2009
Page 19
SOURCES
Canada Mortgage and Housing Corporation, CitySpaces Consulting Ltd. and Urban Futures Inc.
The Impact of the 2010 Olympics on the Vancouver and Sea to Sky Housing Markets. 2006.
Coughlin, S. Needs Assessment, including Seniors Housing Survey Results. Prepared for the
Pemberton Lions Activity Society. July 2008.
Ekistics Town Planning. Benchlands Neighbourhood Concept Plan. 2007.
Gerotech Research Associates. Pemberton and Mount Currie Age-friendly Community Project.
Report submitted to the Pemberton Mount Currie Winds of Change Committee. 2007.
Lumina Services Inc. Pemberton Valley 55+ Housing Market Study and Financial Feasibility
Analysis. Final Report. 2008.
Ministry of Housing and Social Development. “New Seniors Housing for Pemberton.” BC
Housing News Release. April 8, 2009.
M.G. Bach Management Group Ltd. Joint Winds of Change Committee of the Mount Currie
Band and Village of Pemberton. Drug and Alcohol Treatment Options Feasibility Study. 2008.
Pemberton/Mount Currie Drug and Alcohol Task Force. Winds of Change: A Healing Vision.
Final Report. 2004.
Province of British Columbia. Community Charter. Chapter 26. SBC 2003.
Province of British Columbia. Local Government Act, Part 26 - Planning and Land Use
Management. RSBC 1996.
Stantec Consulting Ltd. Pemberton and Area Sub-regional Land Use Planning Study. Prepared
for the Squamish-Lillooet Regional District, Village of Pemberton and Lil’Wat Nation. 2007.
Statistics Canada. Census — Community Profile Tables. 1996, 2001, 2006.
Squamish-Lillooet Regional District. Area C Official Community Plan. Draft, 2008.
Squamish-Lillooet Regional District. Regional Growth Strategy. Draft, 2008.
The Pique. Rental Classified Listings. February and September Issues — 2002—2009.
Affordable Housing
Report
Village of Pemberton. Bylaw No. 466-2001. Zoning Bylaw. 2001.
Village of Pemberton Development Services Department. Snapshot 2009: A community status
report to inform Pemberton’s future land use and growth policies. 2009.
Village of Pemberton. Official Community Plan. 1999.
Prepared for the
Village of Pemberton. Strategic Plan. 2005.
June 2009
Whistler Housing Authority. Employer Housing Needs Assessment. 2008.
Whistler Real Estate Company. Sales Statistics. 1992—2009.
Page 20

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